IRVINE, 


No. 


THE  LIBRARY 

OF 

THE  UNIVERSITY 

OF  CALIFORNIA 

IRVINE 

GIFT  OF 

ROBERT  CARLSON 


THE  TEACHING  STAFF 


THE  SURVEY  COMMITTEE  OF  THE 
CLEVELAND  FOUNDATION 

Charles  E.  Adams,  Chairman 

Thomas  G.  Fitzsimons 

Myrta  L.  Jones 

Bascom  Little 

Victor  W.  Sincere 


Arthur  D.  Baldwin,  Secretary 

James  R.  Garfield,  Counsel 

Allen  T.  Burns,  Director 


THE  EDUCATION  SURVEY 
Leonard  P.  Ayres,  Director 


CLEVELAND  EDUCATION  SURVEY 

THE  TEACHING  STAFF 


BY     ./C 


WALTER  A.  JESSUP 


DEAN  OF  THE  COLLEGE  OF  EDUCATI 
STATE  UNIVERSITY  OF  IOWA 


ox 


THE  SURVEY  COMMITTEE  OF  THE 

CLEVELAND  FOUNDATION 

CLEVELAND  •  OHIO 

18  1916 


Lf\ 


COPYRIGHT,  1916,  BY 

THE  SURVEY  COMMITTEE  OF  THE 
CLEVELAND  FOUNDATION 


WM  •  P.  FELL  CO '  PRINTERS 
PHILADELPHIA 


FOREWORD 

,.  This  report  on  "The  Teaching  Staff"  is  one  of 
the  25  sections  of  the  report  of  the  Education 
\  Survey  of  Cleveland  conducted  by  the  Survey 
j'  Committee  of   the  Cleveland   Foundation   in 
c  1915.     Twenty-three  of  these  sections  will  be 
.  '  published  as  separate  monographs.     In  addi- 
'tion  there  will  be  a  larger  volume  giving  a 
'  summary   of   the   findings   and   recommenda- 
tions relating  to  "the  regular.'  worTi"^  the  public 

*         VV     '     -       J  -  **-*     '  O  J  o       •*  •*  ^  •* 

schools,  and  "a' second  similar  volume  giving 
the  summary  of  those  sections  rcia^iLVg^Q.i;!^- 
dustrial  education.  Copies  of  all  these  pub- 
lications may  be  ;ob  tanked  ^frooi  the  Cleveland 
Foundation.  They  may  also  be  obtained  from 
the  Division  of  Education  of  the  Russell  Sage 
Foundation,  New  York  City.  A  complete  list 
o  will  be  found  hi  the  back  of  this  volume,  to- 
gether with  prices. 


J177253 


TABLE  OF  CONTENTS 

PAGE 

Foreword  5 
List  of  Tables  9 
List  of  Diagrams  10 
Salary  schedule  of  elementary  teachers  11 
Salary  schedule  of  high  school  teachers  13 
Exception  to  the  regular  schedule  14 
Special  provisions  16 
Substitutes  in  high  schools  17 
Salary  schedule  of  elementary  principals  17 
Special  teachers  17 
Salaries  actually  paid  to  Cleveland  teachers  19 
Number  and  salaries  of  supervisory  officers  20 
Salaries  in  Cleveland  compared  with  salaries  else- 
where 20 
Salaries  of  elementary  principals  23 
Salaries  of  high  school  teachers  26 
Salary  increases  28 
Increase  in  the  cost  of  living  29 
What  do  other  people  receive  in  Cleveland?  30 
Salaries  of  teachers  as  compared  with  those  of 

policemen  and  firemen  32 

High  school  teachers  32 
Why  should  citizens  of  Cleveland  be  interested  in 

this  question?  32 

School  funds  and  teachers'  salaries  36 

Teachers'  pension  fund  38 


Sex  of  teachers  41 
Experience  of  teachers  42 
Experience  of  principals  45 
Tenure  of  elementary  and  high  school  teachers  47 
Ages  of  teachers  49 
Ages  of  principals  51 
Education  of  elementary  and  high  school  teachers  53 
Educational  and  professional  preparation  of  ele- 
mentary principals  55 
Teachers  trained  in  Cleveland  57 
Exceptional  cases  60 
The  pension  fund  and  teachers  who  enter  late  62 
Married  teachers  65 
Training  in  service  68 
Summer  schools  70 
Teachers'  meetings  71 
Other  means  of  training  teachers  in  service  74 
Promotions  75 
Reports  of  professional  growth  79 
Promotions  for  merit  and  service  80 
The  Normal  Training  School  81 
Larger  opportunities  for  the  Normal  Training 

School  85 

Health  of  teachers  87 

Teachers'  certification  93 

Tenure  103 

Dismissal  of  teachers  104 

Substitutes  106 

Appointment  of  teachers  107 

Summary  109 


LIST  OF  TABLES 

TABLE  PAGE 

1.  Salaries  of  Cleveland  teachers,  payroll  at  close 

of  1914-15  18 

2.  Salaries  of  supervisory  officers  in  1915  19 

3.  Salaries  of  elementary  teachers  in  Cleveland 

and  13  other  cities  in  1913  20 

4.  Distribution  of  annual  salaries  of  regular  teach- 

ers in  elementary  schools  in  Cleveland  and 
in  13  other  cities  of  more  than  250,000  in- 
habitants 21 

5.  Distribution  of  annual  salaries  of  principals  in 

elementary  schools  in  Cleveland  and  in  13 
other  cities  of  more  than  250,000  inhabi- 
tants 24 

6.  Distribution  of  annual  salaries  of  regular  teach- 

ers in  secondary  schools  in  Cleveland  and  in 
13  other  cities  of  more  than  250,000  inhabi- 
tants 26 

7.  Per  cent  of  increase  in  average  salaries  of  ele- 

mentary teachers  in  14  cities  from  1904  to 

1913  28 

8.  Percentage  of  increase  in  retail  food  prices  from 

the  average  for  the  years  1890-99  to  the  year 

1914  30 

9.  Annual  wages  of  elementary  teachers  and  ar- 

tisans in  five  cities  31 

10.  Total  teaching  experience  of  elementary  and 

high  school  teachers  44 

11.  Total  teaching  experience  of  elementary  prin- 

cipals 46 


12.  Length  of  teaching  experience  in  Cleveland  of 

elementary  and  high  school  teachers  48 

13.  Ages  of  elementary  and  high  school  teachers    50 

14.  Ages  of  elementary  principals  52 

15.  General   and   professional   education   of  ele- 

mentary and  high  school  teachers  54 

16.  Educational  and  professional  preparation  of 

elementary  principals  56 


LIST  OF  DIAGRAMS 

DIAGRAM  PAGE 

1.  Median  salaries  of  elementary  teachers  in  10 

cities  23 

2.  Median  salaries  of  elementary  principals  in  10 

cities  25 

3.  Median  salaries  of  high  school  teachers  in  10 

cities  27 

4.  Professional  training  of  elementary  teachers  in 

Cleveland  55 

5.  College  education  of  high  school  teachers  in 

Cleveland  55 

6.  Professional  training  of  elementary  principals 

in  Cleveland  56 

7.  Per  cent  of  teachers  and  principals  who  are  home 

trained  and  not  home  trained  58 

8.  Number  of  teachers  leaving  service  for  each 

cause  at  each  successive  year  of  age  64 

9.  Teachers  receiving  pay  for  different  amounts  of 

absence  in  1913-14  90 


THE  TEACHING  FORCE 

SALARY  SCHEDULE  OF  ELEMENTARY  TEACHERS 

For  purposes  of  salary  adjustment  there  are  five 
classes  of  teachers  in  the  elementary  schools  of 
Cleveland: — the  probationary  class,  the  first 
class,  the  second  class,  the  third  class,  and  sub- 
stitutes. Teachers  are  assigned  to  one  or  the 
other  of  these  classes  at  the  time  of  appoint- 
ment. 

Teachers  in  the  probationary  class  receive 
$500  the  first  year.  "  Teachers  of  one  or  more 
years  of  successful  experience  in  this  class  may 
be  promoted  to  the  first  class  only  by  the  super- 
intendent with  the  approval  of  the  Board  of 
Education." 

Teachers  of  the  first  class  receive  the  first  year 
an  annual  salary  of  $550;  the  second  year  $600; 
the  third  year  $650;  the  fourth  year  $700. 
"  Teachers  with  four  or  more  years  of  successful 
experience  in  this  class  may  be  promoted  to  the 
second  class  only  by  the  superintendent  with  the 
approval  of  the  Board  of  Education." 

Teachers  of  the  second  class  receive  the  first 
year  an  annual  salary  of  $750;  the  second  year 

11 


$800;  the  third  year  $850;  and  the  fourth  year 
$900.  "Teachers  with  four  or  more  years  of  suc- 
cessful experience  in  this  class  may  be  promoted 
to  the  third  class  only  by  the  superintendent 
with  the  approval  of  the  Board  of  Education." 

Teachers  of  the  third  class  receive  the  first 
year  an  annual  salary  of  $950;  the  second  year 
and  thereafter  $1,000.  "This  schedule  applies 
to  all  teachers  in  the  grades,  including  teachers 
of  cooking,  German  (exchange  and  special), 
School  for  the  Deaf,  classes  for  defective  chil- 
dren, and  kindergarten.  Provision  is  made  so 
that  teachers  in  the  elementary  and  industrial 
schools,  the  Boys'  School,  the  Observation 
School,  the  Training  School,  and  School  for  the 
Blind,  shall  receive  10  per  cent  above  this 
schedule." 

The  Board  regulation  concerning  elementary 
substitute  teachers  is  as  follows:  "In  the  ele- 
mentary schools,  substitutes  who  perform  the 
duties  of  absent  teachers,  whether  the  absence 
is  occasioned  by  illness,  leave  of  the  superin- 
tendent of  schools,  or  in  a  school  to  which  no 
regular  teacher  has  been  assigned,  shall  be  paid 
by  the  day  at  the  rate  which  their  experience 
would  allow,  according  to  the  provisions  of  pro- 
bationary class,  first  class,  and  second  class  of 
the  foregoing  schedule;  provided,  however, 
that  such  as  are  under-graduates  of  the  Normal 

12 


School  without  experience,  shall  be  paid  at  the 
rate  of  $400  per  year." 

Thus,  according  to  the  provisions  of  this 
schedule,  it  may  be  seen  that  the  elementary 
teacher  who  begins  as  a  probationary  teacher 
at  $500  may  arrive  at  the  third  or  highest  class 
salary  after  a  minimum  experience  of  10  years. 

On  December  27,  1915,  the  Board  of  Educa- 
tion amended  the  salary  schedule  by  providing 
that  after  the  beginning  of  the  school  year  1916- 
17,  the  salary  of  probationary  teachers  shall  be 
increased  from  $500  to  $550,  and  that  of  the 
first  class  teacher  in  her  first  year  from  $550  to 
$600  and  in  her  second  year  from  $600  to  $625. 


SALARY  SCHEDULE  OF  HIGH  SCHOOL  TEACHERS 
For  the  purposes  of  salary  adjustment  in  the 
normal  and  high  school,  there  are  also  five 
classes  of  teachers.  The  salary  schedule  for 
each  is  as  follows : 

First  class  teachers  receive  $1,000  the  first 
year.  There  is  an  annual  increase  of  $100  until 
$1,200  is  reached.  After  four  or  more  years' 
successful  experience  under  this  schedule, 
teachers  are  eligible  to  promotion  by  the  super- 
intendent, on  the  recommendation  of  the  prin- 
cipal and  approval  of  the  Board,  to  positions  of 
the  second  class.  Teachers  of  the  second  class 

13 


receive  $1,300  with  biennial  increases  of  $100 
until  $1,500  is  reached.  Teachers  of  10  or  more 
years'  successful  experience,  under  this  schedule, 
are  eligible  to  promotion,  under  conditions  men- 
tioned above,  to  positions  in  the  third  class. 
Third  class  teachers  receive  $1,600  the  first  two 
years.  They  then  receive  $1,700  for  one  year 
and  $1,800  for  two  years.  Teachers  of  15  or 
more  years'  successful  experience,  under  this 
schedule,  are  eligible  to  promotion,  under  con- 
ditions mentioned  above,  to  positions  of  the 
fourth  class.  Fourth  class  teachers  receive 
$1,900  the  first  year  and  $2,000  the  second  year. 
A  fifth  class  is  made  up  of  first  assistant  princi- 
pals of  high  schools  who  receive  $2,100  the  first 
year  and  $2,200  the  second  year.  First  assistants 
in  high  schools  with  an  enrollment  of  more  than 
1,000  may  receive  $2,300.  Second  assistant 
principals  with  18  years'  experience,  under  the 
schedule,  upon  recommendation  of  the  principal 
and  superintendent,  may  receive  $2,100. 


EXCEPTION  TO  THE  REGULAR  SCHEDULE 
The  Board  regulation  concerning  exceptions 
reads  as  follows:  "This  schedule  is  based  on  25 
periods  per  week  of  class  instruction  in  academic 
studies  (approximately  30  periods  per  week 
being  an  equivalent  in  laboratory  and  shop  in- 

14 


struction),  covering  a  period  of  38  weeks.  In 
schools  which  vary  from  this  base — (1)  in  the 
number  of  periods  of  class  teaching  per  week; 
or  (2)  in  the  number  of  weeks — teachers  shall 
be  paid  pro  rata." 

This  regulation,  coupled  with  the  fact  that 
the  sessions  in  all  academic  high  schools  by 
Board  regulation  are  shorter  than  in  the  techni- 
cal high  schools,  including  the  High  School  of 
Commerce,  means  that  lower  salaries  are  paid 
in  the  academic  high  schools.  The  Board  regu- 
lation is  as  follows:  " Sessions  in  all  academic 
high  schools  shall  be  from  8 :30  a.  m.  to  1 :30  p. 
m.  For  all  pupils  of  technical  high  schools,  in- 
cluding the  High  School  of  Commerce,  the 
hours  shall  be  from  8:30  a.  m.  to  3:30  p.  m., 
with  one  period  for  luncheon." 

There  has  been  no  little  dissatisfaction 
among  the  teachers  in  the  academic  high  schools 
in  regard  to  this  adjustment  of  salary,  and  on 
December  27,  1915,  the  Board  of  Education 
amended  it  so  as  to  do  away  with  the  difference 
in  the  rates  of  pay  of  the  teachers  in  the  acade- 
mic, technical,  and  commercial  high  schools. 
Under  the  new  provisions,  which  go  into  effect 
in  September,  1916,  the  length  of  the  school  day 
will  be  uniform  in  all  the  high  schools.  Teachers 
employed  in  December,  1915,  who  continue  in 
their  positions  after  September,  1916,  will  not 

15 


in  any  case  have  their  salaries  reduced  by  the 
operation  of  the  new  schedules.  The  new  salary 
rates  will  then  be  as  follows : 

First  probationary  class $800 

Second  probationary  class 

First  year 900 

Second  year 1,000 

Regular  first  class 

First  year 1,100 

Second  year 1,200 

Third  year 1,300 

Fourth  year 1,400 

Fifth  year 1,400 

Regular  second  class 

First  year 1,500 

Second  year 1,500 

Third  year 1,600 

Fourth  year 1,600 

Fifth  year 1,700 

Sixth  year 1,700 

Regular  third  class 

First  year 1,800 

Second  year 1,900 

Third  year 1,900 

Fourth  year 2,000 

Regular  fourth  class 

First  year 2,100 

Second  year 2,100 

Third  year 2,200 

Regular  fifth  class 2,300 


SPECIAL  PROVISIONS 

Special  provisions  regulating  the  salaries  of  the 
administrative  and  supervisory  force  of  the 
various  high  schools  and  the  Normal  School 
have  been  made  by  the  Board. 

16 


SUBSTITUTES  IN  HIGH  SCHOOLS 
Provision  is  made  by  the  Board  for  the  employ- 
ment of  substitute  teachers  in  the  high  school 
at  a  salary  somewhat  lower  than  the  lowest 
class  of  regularly  appointed  teachers.  These 
differences  in  salaries  are  based  on  experience. 
For  example,  substitutes  of  less  than  two  years' 
high  school  experience  are  paid  at  the  rate  of 
$800  per  year;  substitutes  with  not  less  than 
five  years'  experience  may  receive  a  salary  as 
high  as  $1,200  per  year. 

SALARY  SCHEDULE  OF  ELEMENTARY  PRINCIPALS 
The  Board  regulation  concerning  salaries  paid 
to  elementary  principals  is  based  on  the  num- 
ber of  regular  standard  classrooms  in  the  build- 
ing or  buildings  over  which  they  have  charge, 
according  to  a  regularly  graded  schedule.  For 
example,  the  principal  of  a  four-room  building 
is  eligible  to  a  salary  of  $1,000.  The  principal 
of  a  36-room  building  is  eligible  to  a  salary  of 
$2,000.  Assistant  principals  receive  an  extra 
stipend  of  $50  each  year  in  addition  to  the 
amount  fixed  by  their  regular  classification  on 
the  payroll. 

SPECIAL  TEACHERS 

Provision  is  made  for  the  employment  of  special 
teachers  in  the  departments  of  medical  inspec- 
2  17 


tion,  manual  training,  physical  training,  and 
the  like,  at  salaries  ranging  from  $700  in  the 
case  of  a  special  teacher  of  physical  training  in 
the  elementary  school,  to  a  maximum  of  $1,500 
for  a  special  teacher  of  manual  training. 


TABLE  1.— SALARIES  OF  CLEVELAND  TEACHERS,  PAYROLL  AT 
CLOSE  OF  1914-15 


High  school 
teachers 

Elementary 
principals 

Elementary 
teachers 

2  at  $2,640 

4  at  $2,000 

1  at  $1,650 

1 

2,530 

1 

1,980 

2 

1,540 

1 

2,500 

1 

1,960 

4 

1,500 

5 

2,400 

1 

1,880 

1 

1,430 

2 

2,300 

3 

1,840 

1 

1,400 

4 

2,280 

4 

1,800 

5 

1,300 

4 

2,200 

6 

1,740 

1 

1,210 

2 

2,160 

1 

1,710 

7 

1.200 

7 

2,100 

3 

1,700 

1 

1,155 

3 

2,040 

4 

1,680 

71 

1.100 

22 

2,000 

3 

1,650 

83 

1,050 

7 

1,920 

3 

1,620 

3 

1,045 

20 

,900 

1 

1.600 

762 

1,000 

37 

,800 

8 

1,590 

108 

950 

4 

,700 

13 

1,560 

196 

900 

14 

,680 

7 

1.520 

112 

850 

24 

,600 

2 

1,500 

2 

825 

24 

,560 

10 

1,480 

130 

800 

19 

,500 

3 

1,440 

1 

770 

27 

1,440 

5 

1,400 

133 

750 

23 

1,400 

1 

1,325 

4 

715 

12 

1,320 

5 

1,320 

164 

700 

17 

1,300 

1 

1,300 

145 

650 

66 

1,200 

2 

1,200 

136 

600 

10 

1,100 

4 

1,160 

20 

550 

12 

1,000 

1 

1,120 

110 

500 

17 

800 

1 

1,080 

1 

400 

1 

650 

Two  high  school  principals  at  $3,500  and  eight  at  $3,000. 


18 


THE  SALARIES  ACTUALLY  PAID  TO  CLEVELAND 

TEACHERS 

Table  1,  based  on  the  payroll  at  the  close  of  the 
year  1914-15,  shows  the  different  salaries  paid 
to  the  different  types  of  teachers.  This  table 
should  be  read  as  follows :  There  were  two  high 
school  teachers  who  received  $2,640,  four  ele- 
mentary principals  who  received  $2,000,  and 
one  elementary  teacher  who  received  $1,650. 

TABLE  2.— SALARIES  OF  SUPERVISORY  OFFICERS  IN  1915 


Officer 

Men 

Women 

Salary 

Superintendent 

1 

$6,000 

Assistant  superintendent 

4 

3,750 

Supervisor  of  requisitions  and  reports 
Assistant  superintendent  (physical  education 

1 

3,000 

—  part  time) 

1 

1,500 

General  supervisor 

'2 

2,400 

General  supervisor 

1 

2,300 

General  supervisor 

1 

2,000 

Supervisor  of  German 

'i 

2,000 

Supervisor  of  drawing  and  applied  arts 

'i 

2,100 

Assistant  supervisor  of  drawing  and  applied 

arts 

3 

1,050 

Assistant  supervisor  of  drawing  and  applied 

arts 

1 

1.000 

Supervisor  of  music 

'i 

2,400 

Assistant  supervisor  of  music 
Assistant  supervisor  of  music 

'i 
i 

1,200 
1,050 

Assistant  supervisor  of  music 

2 

1,000 

Supervisor  of  writing 

i 

2,300 

Assistant  supervisor  of  writing 
Assistant  supervisor  of  writing 
Assistant  supervisor  of  writing 
Supervisor  of  manual  training 

"i 

'i 
i 
i 

1,200 
1,050 
1,000 
2,500 

Assistant  supervisor  of  manual  training 
Supervisor  of  domestic  science 

i 

i 

1,000 
2,000 

Supervisor  of  physical  education 
Supervisor  of  indoor  recreation 

"i 

'i 

2,400 
1,200 

Supervisor  of  work  for  the  blind 

'i 

1,500 

Total 

12 

19 

$65,650 

19 


NUMBER  AND  SALARIES  OF  SUPERVISORY 

OFFICERS 

Table  2,  based  on  the  payroll  at  the  close  of 
1914-15,  shows  the  salaries  paid  to  the  various 
supervisory  officers  of  the  Cleveland  schools. 

TABLE  3.— SALARIES  OF  ELEMENTARY  TEACHERS  IN  CLEVE- 
LAND AND  13  OTHER  CITIES  IN  1913 


City 

Popu- 
lation 

Average 
salary 

Median 
salary 

Lower 
quartile 

Upper 
quartile 

San  Francisco 

440,995 

$1,152 

$1,200 

$1,140 

$1,224 

Boston 

722,465 

1,059 

1,176 

792 

1,176 

Chicago 

2,344,018 

1,054 

1,175 

925 

1,200 

St.  Louis 

723,347 

993 

1,032 

972 

1,032 

Newark 

379,211 

951 

1,000 

730 

1,100 

Cincinnati 

398,452 

941 

1,000 

850 

1,000 

Minneapolis 

333,472 

937 

1,000 

900 

1,000 

Milwaukee 

408,683 

886 

876 

876 

876 

Philadelphia 

1,631,956 

861 

900 

750 

1,000 

Cleveland 

622,699 

834 

850 

675 

950 

Washington 

348,077 

798 

750 

700 

950 

Indianapolis 

253,668 

767 

875 

600 

925 

Baltimore 

574,575 

722 

700 

600 

800 

New  Orleans 

355,958 

668 

700 

600 

750 

SALARIES  IN  CLEVELAND  COMPARED  WITH 

SALARIES  ELSEWHERE 

It  is  important  to  note  how  the  salaries  paid  in 
Cleveland  compare  with  the  salaries  paid  in 
other  cities.  Table  3,  taken  from  Bulletin  No. 
589  of  the  United  States  Bureau  of  Education, 
indicates  the  relation  which  existed  between  the 
salaries  paid  elementary  teachers  in  Cleveland 
in  1913  and  salaries  paid  elsewhere  at  that  time. 


20 


In  this  table  and  in  Table  4  assistant  principals 
are  included  as  regular  teachers  in  every  case. 
It  is  to  be  noted  that  three  years  ago  the  only 
cities  ranking  lower  than  Cleveland,  so  far  as  the 
average  salary  paid  elementary  teachers  is  con- 
cerned, were  the  three  cities  having  large  num- 
bers of  colored  teachers.  It  is  true  that  Cleve- 
land has  since  increased  teachers'  salaries  so 
that  the  median  salary  is  now  $50  larger  than  it 
was  then.  It  is  also  true  that  some  of  the  other 
cities  have  increased  salaries  during  the  past 
three  years.  The  figures  of  the  table  are  the 
latest  ones  that  can  be  secured  for  all  of  the 
cities  on  the  same  basis. 


TABLE  4.— DISTRIBUTION  OF  ANNUAL  SALARIES  OF  REGULAR 

TEACHERS  IN  ELEMENTARY  SCHOOLS  IN  CLEVELAND  AND 

IN  13  OTHER  CITIES  OF  MORE  THAN  250,000  INHABITANTS 


City 

Salaries  not  exceeding  the  amounts  specified  were 
earned  by  teachers  bearing  to  the  aggregate  num- 
ber employed  in  each  city  the  proportion  of 

10  per 
cent 

30  per 
cent 

50  per 
cent 

70  per 
cent 

90  per 
cent 

San  Francisco 
Boston 
Chicago 
St.  Louis 
Cincinnati 

$840 
648 
675 
700 
700 

$1,164 
840 
975 
1,032 
900 

$1,200 
1,176 
1,175 
1,032 
1,000 

$1,224 
1,176 
1,175 
1,032 
1,000 

$1,224 
1,224 
1,200 
1,120 
1,000 

Minneapolis 
Newark 
Cleveland 
Philadelphia 
Milwaukee 

750 
630 
600 
630 
876 

950 
780 
750 
780 
876 

1,000 
1,000 
900 
900 
876 

1,000 
1,100 
1,000 
940 
876 

1,000 
1,300 
1,000 
1,000 
876 

Indianapolis 
Washington 
Baltimore 
New  Orleans 

475 
625 
600 
500 

625 
700 
700 
600 

875 
750 
700 
700 

925 
890 
750 
750 

925 
980 
800 
800 

21 


Table  4  presents  in  more  complete  form  the 
comparison  between  the  salaries  paid  elemen- 
tary teachers  in  Cleveland  and  those  paid  in 
the  13  other  large  cities.  These  data  are  from 
the  payroll  of  the  Cleveland  schools  at  the  close 
of  the  school  year  in  1915  and  from  "Tangible 
Rewards  of  Teaching,"  published  by  the  United 
States  Bureau  of  Education  in  1914  and  giving 
data  for  the  school  year  1912-13.  This  compari- 
son is  unduly  favorable  to  Cleveland  for  it  takes 
into  account  the  salary  increases  made  here 
from  1913  to  1915,  but  does  not  take  into  ac- 
count those  that  have  been  made  in  the  other 
cities. 

The  meaning  of  Table  4  becomes  clear  when 
read  as  follows : 

10  per  cent  of  the  teachers  of  San  Francisco  are  receiving  $840 

or  less. 
30  per  cent  of  the  teachers  of  San  Francisco  are  receiving 

$1,160  or  less. 
50  per  cent  of  the  teachers  of  San  Francisco  are  receiving  $1,200 

or  less. 
70  per  cent  of  the  teachers  of  San  Francisco  are  receiving 

$1,224  or  less. 
90  per  cent  of  the  teachers  of  San  Francisco  are  receiving 

$1,224  or  less. 

Ten  per  cent  of  Cleveland's  teachers  are  re- 
ceiving $600  or  less;  30  per  cent  of  the  group  are 
receiving  $750  or  less;  the  50  per  cent  or  median 
is  $900;  the  70  per  cent  and  90  per  cent  groups 
are  receiving  $1,000  or  less. 

22 


THE  SALARIES  OF  ELEMENTARY  PRINCIPALS 
The  salaries  of  the  elementary  principals  of 
Cleveland  as  compared  with  those  in  13  other 


ISan  Francisco 


Boston 


CLEVELAND 


Milwaukee 


Diagram  1. — Median  salaries  of  elementary  teachers  in  10 
cities 


cities  of  its  class  are  indicated  in  Table  5. 
Here  the  data  are  from  the  same  source  as  those 
of  Table  4  and  are  treated  in  the  same  way. 

23 


Again  it  must  be  remembered  that  if  it  were 
possible  to  secure  reliable  figures  for  all  cities 
completely  up  to  date,  the  showing  of  Cleve- 
land would  be  less  favorable  than  it  is  here. 

TABLE  5.— DISTRIBUTION  OF  ANNUAL  SALARIES  OF  PRINCI- 
PALS IN  ELEMENTARY  SCHOOLS  IN  CLEVELAND  AND  IN  13 
OTHER  CITIES  OF  MORE  THAN  250,000  INHABITANTS 

Salaries  not  exceeding  the  amounts  specified 
were  earned  by  principals  bearing  to  the  ag- 
gregate number  employed  in  each  city  the 

proportion  of 
City 


10  per 

cent 

30  per 

cent 

50  per 

cent 

70  per 
cent 

90  per 
cent 

Boston 

$2,580 

$2,940 

$3,300 

$3,300 

$3,300 

Chicago 

1,800 

2,600 

2,800 

3,100 

3,100 

Newark 

2,000 

2,400 

2,600 

2,900 

3,000 

St.  Louis 

1,220 

2,000 

2,500 

3,000 

3,000 

Cincinnati 

1,800 

1,900 

2,200 

2,400 

2,400 

Baltimore 

1,900 

2,000 

2,000 

2,000 

2,000 

Milwaukee 

1,980 

1,980 

1,980 

1,980 

1,980 

San  Francisco 

1,560 

1,800 

1,800 

2,160 

2,340 

Minneapolis 
Philadelphia 

1,100 
1,100 

1,300 
1,510, 

1,600 
1,600 

1,800 
2,380 

2,100 
2,500 

Cleveland 

1,320 

1,480 

1,560 

1,650 

1,840 

Washington 

1,130 

1,310 

1,510 

1,540 

1,890 

Indianapolis 

950 

1,100 

1,300 

1,500 

1,800 

New  Orleans 

900 

1,150 

1,250 

1,300 

1,350 

The  meaning  of  Table  5  becomes  clear  when  it 
is  read  thus:  10  per  cent  of  the  elementary 
principals  in  Boston  receive  $2,580  or  less. 
Another  way  of  stating  the  same  thing  is,  90 
per  cent  of  the  principals  in  Boston  are  receiv- 
ing $2,580  or  more;  70  per  cent  $2,940  or. more, 
and  so  on.  Reference  to  Cleveland  reveals  the 
fact  that  in  the  10  per  cent  group  Cleveland 

24 


ranks  eight ;  in  the  30  per  cent  group  Cleveland 
ranks  10;  in  the  50  per  cent  group  Cleveland 
ranks  11;  in  the  70  per  cent  group  Cleveland 


[2233 


Diagram  2. — Median  salaries  of  elementary  principals  in  10 
cities 


ranks  11;  in  the  90  per  cent  group  Cleveland 
ranks  12;  in  other  words,  salaries  of  the  prin- 
cipals in  Cleveland  are  extremely  low,  as  com- 

25 


pared  with  the  salaries  of  principals  in  other 
cities  of  the  same  class. 


SALARIES  OF  HIGH  SCHOOL  TEACHERS 
The  salaries  of  the  high  school  teachers  of  Cleve- 
land as  compared  with  the  salaries  paid  in  13 
other  cities  of  its  class  are  indicated  in  Table  6. 
These  data  are  from  the  payroll  of  the  Cleve- 
land schools  for  1914-15  and  from  "Tangible 
Rewards  of  Teaching,"  United  States  Bureau 
of  Education,  1914.  The  cities  are  arranged  in 
the  descending  order  of  the  median  or  50  per 
cent  salaries. 


TABLE  6.— DISTRIBUTION  OF  ANNUAL  SALARIES  OF  REGULAR 

TEACHERS  IN  SECONDARY  SCHOOLS  IN  CLEVELAND  AND  IN 

13  OTHER  CITIES  OF  MORE  THAN  250,000  INHABITANTS 


City 

Salaries  not  exceeding  the  amounts  specified  were 
earned  by  teachers  bearing  to  the  aggregate  num- 
ber employed  in  each  city  the  proportion  of 

10  per 
cent 

30  per 

cent 

50  per 
cent 

70  per 
cent 

90  per 
cent 

Newark 
Washington 
San  Francisco 
Boston 
Chicago 

$1,400 
1,300 
1,680 
1,044 
1,100 

$1,600 
1,600 
1,680 
1,260 
1,400 

$1,900 
1,800 
1,680 
1,620 
1,600 

$2,100 
1,800 
2,040 
1,908 
1,800 

$2,500 
1,800 
2,040 
3,060 
2,300 

St.  Louis 
Cleveland 

Minneapolis 
Philadelphia 
Cincinnati 

1,120 
1,100 

1,100 
1,000 
900 

1,300 
1,300 
1,300 
1,250 
1,100 

1,520 
1,500 

1,400 
1,400 
1,300 

1,700 
1,800 
1,500 
1,600 
1,800 

2,100 
2,000 
1,600 
2,500 
2,300 

Milwaukee 
Baltimore 
Indianapolis 
New  Orleans 

1,260 
780 
900 
750 

1,260 
1,000 
1,000 
900 

1,260 
1,200 
1,100 
1,100 

1,260 
1,300 
1,200 
1,150 

1,380 
1,800 
1,500 
1,400 

26 


Table  6  should  be  read :  10  per  cent  of  the  high 
school  teachers  of  Newark  are  receiving  $1,400 


Diagram  3. — Median  salaries  of  high  school  teachers  in  10 
cities 


or  less;  30  per  cent  are  receiving  $1,600  or  less. 
Expressed  in  another  way,  it  means  that  90  per 
cent  of  the  teachers  are  receiving  $1,400  or 

27 


more.  It  is  noteworthy  that  Cleveland  stands  in 
about  the  middle  place  in  all  the  comparisons. 


SALARY  INCREASES 

According  to  the  data  reported  in  Bulletin,  1915, 
No.  31,  of  the  United  States  Bureau  of  Educa- 
tion, the  increases  in  the  average  salaries  for 
elementary  school  teachers  in  the  period  1903-04 
and  1912-13  were  as  follows  in  the  14  large  cities 
for  which  we  have  data : 

TABLE  7.— PER  CENT  OF  INCREASE  IN  AVERAGE  SALARIES  OF 
ELEMENTARY  TEACHERS  IN  14  CITIES  FROM  1904  TO  1913 


City 

Per  cent  increase 

Boston 
Cleveland 

Philadelphia 
San  Francisco 
Washington 

6 
15 

20 
21 
25 

Chicago 
Newark 
Baltimore 
Cincinnati 
Indianapolis 

26 
29 
31 
31 
31 

Minneapolis 
New  Orleans 
Milwaukee 
St.  Louis 

34 
37 
39 
52 

It  is  evident  that  Cleveland  did  not  recognize 
the  changed  living  conditions  within  this  period, 
in  so  far  as  the  salary  of  the  elementary  teacher 
is  concerned.  The  average  increase  of  salary  in 
every  city  except  Boston  was  decidedly  larger 

28 


than  Cleveland.  While  it  is  true  that  the  aver- 
age salary  in  Boston  increased  only  six  per  cent, 
it  must  be  borne  in  mind  that  in  1903-04  the 
average  salary  paid  the  elementary  teacher  in 
Boston  was  $941,  which  is  $256  more  than  the 
average  salary  paid  in  Cleveland  at  the  same 
time. 

INCREASE  IN  THE  COST  OF  LIVING 
The  teachers  of  Cleveland  surely  confront  seri- 
ous difficulties  in  the  matter  of  meeting  living 
expenses.  Table  8  shows  the  percentage  of  in- 
crease in  retail  food  prices  from  the  average  for 
the  decade  of  1890-99  to  the  year  1914.  The 
figures  are  for  the  north  central  states  and  the 
data  are  compiled  from  the  bulletins  of  the 
United  States  Bureau  of  Labor  Statistics,  Whole 
Nos.  140  and  184. 

It  is  a  well  recognized  fact  that  the  purchasing 
power  of  a  dollar  varies  somewhat  from  one  sec- 
tion of  the  country  to  another.  Statisticians  of 
the  United  States  Bureau  of  Labor  estimate  that 
a  salary  of  $900  in  Cleveland  is  equivalent  in 
purchasing  power  to  one  of  $990  in  Boston,  and 
$880  in  Chicago.  Thus  the  average  salary  of 
$791  in  Cleveland  shows  to  an  even  greater  dis- 
advantage when  compared  with  the  $1,034 
average  annual  salary  of  elementary  teachers 
in  Chicago.  Those  figures  are  from  the  Report 

29 


of    the    National    Education    Association    on 
"Teachers'  Salaries  and  the  Cost  of  Living." 

TABLE    8— PERCENTAGE    OF    INCREASE    IN    RETAIL    FOOD 

PRICES  FROM  THE  AVERAGE  FOR  THE  YEARS  1890-99  TO  THE 

YEAR  1914 


Article 

Per  cent  of  increase 

Sugar,  granulated 
Potatoes,  Irish 
Flour,  wheat 
Milk,  fresh 
Butter,  creamery 

2 
16 
32 
41 
55 

Eggs,  strictly  fresh 
Corn  meal 
Lard,  pure 
Rib  roast 
Ham,  smoked 

57 
64 
68 
70 
76 

Hens 
Sirloin  steak 
Round  steak 
Bacon,  smoked 
Pork  chops 

80 
86 
105 
109 
114 

WHAT  Do  OTHER  PEOPLE  RECEIVE  IN  CLEVE- 
LAND? 

According  to  data  furnished  by  the  Bureau  of 
Railway  Economics,  Exhibit  No.  39,  Washing- 
ton, D.  C.,  September,  1914,  the  average  annual 
wages  of  artisans  in  Cleveland  were  as  shown 
below.  The  average  salary  of  the  elementary 
teacher  is  included  for  comparison. 

Plumbers $1,219 

Bricklayers 1,192 

Plasterers 1,132 

Painters 1,003 

Carpenters 992 

Molders 945 

Machinists 875 

Teachers 791 

30 


Thus  it  may  be  seen  that  the  teachers  of  Cleve- 
land receive  a  lower  average  annual  wage  than 
do  any  of  the  other  workers  in  the  classes  above. 
Interest  attaches  to  the  problem  of  how  the 
salaries  paid  to  teachers  in  other  cities  compare 
with  the  wages  paid  to  other  skilled  workers. 
Table  9  is  of  interest  in  this  connection. 


TABLE  9— ANNUAL  WAGES  OF  ELEMENTARY  TEACHERS  AND 
ARTISANS  IN  FIVE  CITIES 


Cleve- 
land 

Boston 

Chicago 

Minne- 
apolis 

San 
Fran- 
cisco 

Plumbers 

$1,219 

$1,320 

$1,394 

$1,044 

$1,540 

Bricklayers 

1,192 

1,244 

1,293 

1,197 

1,390 

Plasterers 

1,132 

1,201 

1,326 

1,201 

1,309 

Painters 

1,003 

957 

1,232 

921 

1,081 

Carpenters 

992 

1,026 

1,139 

1,030 

964 

Molders 

945 

980 

942 

927 

1,126 

Machinists 

875 

1,074 

884 

958 

944 

Teachers 

791 

1,001 

1,034 

937 

1,124 

It  may  be  seen  that  the  average  salary  of  the 
teacher  in  Boston  is  larger  than  the  wages  of 
molders  or  painters,  and  is  close  to  that  paid  to 
carpenters  and  machinists.  In  Chicago  the 
salary  of  the  teacher  is  larger  than  the  wages  of 
machinists  or  molders.  In  San  Francisco  the 
salary  of  the  teacher  is  larger  than  the  wages  of 
carpenters,  machinists,  or  painters,  and  is  close 
to  that  paid  in  one  or  two  other  trades.  In 
Minneapolis  the  salary  of  the  teacher  is  larger 
than  that  paid  to  molders,  and  painters.  The 

31 


Cleveland  teacher  is  paid  on  a  relatively  dif- 
ferent scale. 

SALARIES  OF  TEACHERS  AS  COMPARED  WITH 

THOSE  OF  POLICEMEN  AND  FIREMEN 
The  average  salary  paid  to  policemen  in  Cleve- 
land* is  $1,177;  to  firemen,  $1,081.  The  aver- 
age salary  of  the  teacher,  $791,  does  not  loom 
large  in  this  comparison.  In  Portland,  Oregon, 
the  teachers  receive  an  average  salary  of  $1,006; 
the  policemen  $1,080;  the  firemen  $1,080. 

HIGH  SCHOOL  TEACHERS 
In  the  five  years  between  1905  and  1910,  the 
high  school  teachers  of  Cincinnati  received  a 
50  per  cent  increase  of  salary;  San  Francisco,  36 
per  cent;  Newark,  26  per  cent;  St.  Louis,  22 
percent;  Minneapolis,  18  per  cent;  Milwaukee, 
14  per  cent;  Chicago,  13  per  cent;  Cleveland,  6 
per  cent;  Boston,  no  increase.  Here  again  it  is 
evident  that  the  city  of  Cleveland  is  not  adjust- 
ing salaries  of  teachers  on  the  same  basis  as 
other  cities. 

WHY  SHOULD  CITIZENS  OF  CLEVELAND  BE  IN- 
TERESTED IN  THIS  QUESTION? 
At  the  present  time  there  are  some  700,000 
school  teachers  employed  in  the  United  States. 

*  Bulletin  No.  31,  1915,  U.  S.  Bureau  of  Education. 
32 


Of  this  number  Cleveland  employs  more  than 
2,700.  The  citizen  of  Cleveland  is  vitally  con- 
cerned with  the  efficiency  of  the  particular 
teachers  on  the  Cleveland  payroll.  In  the  long 
run  we  get  what  we  pay  for.  While  this  may  not 
be  so  evident  in  the  purchase  of  public  service, 
yet  there  can  be  no  doubt  of  the  fact  that  ulti- 
mately a  higher  price  means  a  better  product. 
Many  of  us  like  to  take  advantage  of  bargain 
sales,  but  we  have  come  to  be  wary  of  goods  that 
are  marked  down  at  a  decidedly  lower  price  than 
can  be  found  elsewhere.  Competition  estab- 
lishes somewhat  definite  relationship  between 
value  and  cost.  We  hesitate  before  purchasing 
a  $5.00  pair  of  shoes  for  $2.50,  unless  we  are 
able  to  see  clearly  the  reason  why  these  shoes 
are  offered  for  this  price.  We  try  to  find  the 
reason  for  this  reduction.  We  ask  whether  this 
reduction  has  been  due  to  over-production,  de- 
layed shipments,  the  bankruptcy  court,  or  in- 
ferior goods?  Many  of  us  who  might  be  quite 
willing  to  take  advantage  of  a  bargain  in  the 
purchase  of  material  goods  would  hesitate  long 
before  we  would  risk  the  health  of  a  sick  child 
by  calling  in  a  cheap  physician.  We  should  be 
equally  careful  when  we  call  a  teacher  to  our 
assistance  in  the  up-bringing  of  our  children. 
We  are  forced  to  ask  ourselves  the  question  as 
to  why  it  is  that  the  teachers  in  Cleveland  work 
3  33 


for  less  money  than  do  the  teachers  in  Cincin- 
nati, in  Boston,  in  Minneapolis,  in  Chicago,  and 
elsewhere.  Can  it  be  that  Cleveland  is  unwill- 
ing or  unable  to  recognize  competitive  prices? 
With  the  present  salary  schedule,  there  is  small 
likelihood  of  Cleveland  being  able  to  attract 
teachers  from  other  large  cities  in  the  country 
to  its  employ.  On  the  other  hand,  it  is  difficult 
for  this  city  to  make  the  work  sufficiently  at- 
tractive to  keep  the  ambitious  teacher  in  Cleve- 
land from  going  to  Chicago  or  Minneapolis  or 
elsewhere. 

The  attitude  of  the  average  citizen,  when  he 
thinks  of  the  school  system,  is  modified  con- 
stantly by  the  fact  that  he  knows  only  a  very 
small  number  of  individual  teachers.  Not 
having  a  check  upon  the  effectiveness  of  the 
service  throughout  a  great  city,  he  tends  to 
look  at  the  salary  schedule  as  an  individual 
matter.  When  the  question  arises  "  Can  the  city 
afford  to  pay  Miss  Lucy  Smith  $100  more  than 
she  is  now  receiving?"  he  considers  the  increase 
a  mere  bit  of  good  fortune  to  Miss  Smith.  How- 
ever, the  fact  that  cities  of  the  class  of  Cleve- 
land have  increased  their  salary  schedules  within 
recent  years  means  that  Cleveland  cannot  main- 
tain the  highest  standard  of  efficiency  on  the 
present  salary  schedule. 

The  service  of  the  teacher  is  of  a  professional 
34 


character.  She  deals  with  a  child  in  his  period  of 
helplessness.  The  professional  service  of  the 
teacher  is  indeed  strikingly  like  that  of  the  phy- 
sician. The  physician  is  called  in  at  the  moment 
of  weakness  when  the  patient  can  no  longer 
meet  a  physical  situation.  The  child  is  turned 
over  to  the  school  teacher  at  a  period  when  he 
is  unable  to  cope  with  the  experiences  of  the 
world.  When  he  needs  to  learn  to  read,  the 
teacher  is  called  in;  when  he  needs  to  write,  the 
teacher  is  at  hand;  when  he  learns  to  cipher, 
the  teacher  guides  him  through  the  intricacies 
of  the  process. 

Modern  teachers'  training  schools  have  sought 
to  instill  ideals  of  social  service  rather  than  ideals 
of  personal  advantage.  The  teacher  herself  is 
at  a  disadvantage  in  the  matter  of  salary  ad- 
justment. The  typical  teacher  is  not  in  a  posi- 
tion to  wage  a  campaign  for  an  increase  in  salary. 
She  not  only  lacks  the  skill  to  marshal  her  forces, 
but  her  whole  training  makes  such  a  campaign 
more  or  less  repulsive  to  her  nature.  Indeed 
every  attempt  at  the  organization  of  teachers 
along  this  line  has  been  met  with  this  funda- 
mental attitude,  so  that  even  with  low  salaries 
it  is  still  possible  to  fill  all  the  positions. 

But  it  should  always  be  borne  in  mind  that 
with  the  growing  economic  independence  of 
women  economic  pressures  are  such  as  to  make 

35 


it  imperative  that  many  teachers  seek  work  out- 
side to  eke  out  a  living,  or  shift  from  city  to 
city  in  search  of  higher  salaries.  Again,  many 
teachers  are  coming  to  look  upon  the  work  of 
teaching  as  a  career.  A  number  of  cities  are  al- 
ready seeking  the  type  of  teacher  who  assumes 
this  attitude,  with  the  result  that  the  keenest, 
most  ambitious,  best  all-round  teachers  gather 
in  the  cities  which  provide  the  most  advantage- 
ous conditions  of  service. 

The  work  which  men  teachers  often  do  out- 
side of  school  hours,  such  as  dabbling  in  real 
estate,  conducting  private  classes,  maintain- 
ing professional  offices  of  one  type  or  another, 
cannot  be  other  than  unfortunate  for  the  schools 
of  any  city.  The  woman  who  looks  after  a  fam- 
ily, who  works  until  late  at  night  in  meeting  the 
household  cares,  cannot  be  the  effective  public 
servant  that  she  could  be  if  she  received  a  salary 
large  enough  to  enable  her  to  devote  her  entire 
time  and  energy  to  the  professional  service 
rendered  to  children  in  school. 


SCHOOL  FUNDS  AND  TEACHERS'  SALARIES 
All  of  these  considerations  combine  to  render 
the  teachers'  salary  schedule  a  matter  of  deep 
concern  to  every  citizen  who  has  at  heart  the 
welfare  of  the  city.   In  Cleveland  the  problem 

36 


is  a  peculiarly  difficult  as  well  as  an  important 
one.  The  revenues  of  the  city  are  so  small  that 
municipal  indebtedness  is  growing  with  alarming 
rapidity.  The  expenditures  of  the  city  are  less 
than  those  of  other  municipalities  of  similar 
size.  Nevertheless  the  expenses  of  the  city  are 
each  year  larger  than  the  income  receipts.  From 
the  meager  budget  that  is  available,  Cleveland 
hands  over  to  the  public  schools  a  larger  pro- 
portion than  does  the  average  city  of  similar 
class.  The  sums  thus  made  available  for  educa- 
tional purposes  are  honestly  and,  in  general, 
efficiently  administered,  but  they  are  not  suffi- 
cient to  meet  the  necessary  running  expenses 
of  the  school  system.  The  result  is  that  the  pub- 
lic schools,  as  well  as  the  municipality,  are  bor- 
rowing funds  from  year  to  year  to  meet  de- 
ficiencies for  current  operating  expenses. 

In  the  face  of  these  serious  circumstances  the 
city  is  confronted  by  the  fact  that  it  is  paying 
its  teachers  less  than  other  similar  cities  pay 
their  teachers.  The  question  at  issue  is  how  to 
meet  this  situation.  It  is  a  problem  not  unlike 
that  faced  by  the  head  of  a  family  who  finds 
that  he  is  not  purchasing  sufficient  food  of  proper 
quality  for  his  wife  and  children.  Since  food  is  a 
necessity,  he  first  tries  to  remedy  the  situation 
by  economizing  somewhere  else  and  devoting 
to  the  purchase  of  food  the  funds  thus  saved. 

37 


If  it  proves  that  the  problem  cannot  be  solved 
by  this  method,  the  next  step  is  to  secure  more 
income  by  some  means  or  other. 

The  Board  of  Education  now  finds  itself  in  a 
similar  situation.  Teaching  is  a  necessity,  not  a 
luxury.  If  it  is  to  be  adequate  in  quality,  it  must 
be  paid  for  at  rates  which  are  in  the  long  run 
fixed  by  the  salaries  paid  in  other  cities  and  in 
other  forms  of  employment.  The  funds  avail- 
able in  Cleveland  are  not  adequate  to  pay  such 
salaries  as  are  now  being  received  by  teachers 
elsewhere.  The  first  step  in  remedying  the  situ- 
ation is  to  economize  in  other  expenditures. 
This  process  has  probably  been  already  carried 
about  as  far  as  is  wise.  The  next  step  is  for  the 
Board  of  Education  to  present  these  needs  to 
the  public  in  so  convincing  a  manner  that  they 
will  insist  on  their  representatives  in  the  state 
legislature  changing  the  laws  so  that  the  Board 
can  secure  funds  adequate  to  purchase  the 
teaching  services  that  are  imperative  necessities 
in  a  modern  educational  system. 


TEACHERS'  PENSION  FUND 
Through  the  activities  of  the  principals'  round 
table  in  Cleveland  in  February,  1906,  a  move- 
ment was  started  for  the  establishment  of  a 
teachers'  pension  fund.   The  vote  of  the  teachers 

38 


on  the  establishment  of  this  fund  was  797  for, 
and  713  against.  While  the  majority  was  not 
large  in  favor  of  the  creation  of  the  fund,  yet, 
according  to  the  state  law,  the  approval  of  but 
one-third  of  the  total  number  of  appointed 
teachers  is  all  that  is  necessary  to  make  the  pen- 
sion system  operative.  The  state  law  provides 
for  two  primary  sources  from  which  the  pension 
fund  is  derived,  namely:  the  teachers'  salaries, 
and  a  contingent  fund.  The  sum  of  $2.00  is 
deducted  from  the  monthly  salary  of  each 
teacher  who  has  accepted  the  provisions  of  the 
pension  law.  This  includes  the  teachers  who 
have  entered  the  system  since  the  pension  fund 
was  established,  and  all  of  the  teachers  who  were 
in  the  system  prior  to  that  time  who  chose  to 
accept  the  provisions.  From  the  contingent  fund 
the  Board  of  Education  pays  semi-annually  into 
the  pension  fund  "Not  less  than  one  per  cent 
or  more  than  two  per  cent  of  the  gross  receipts 
that  the  Board  raises  by  taxation."  In  addition 
to  these  two  chief  sources  of  revenue,  the  state 
law  requires  the  Board  of  Education  to  pay 
monthly  into  the  pension  fund  "All  deductions 
from  the  salaries  of  teachers  on  account  of  either 
tardiness  or  absence." 

Up  to  a  maximum  of  $450,  the  amount  of  pen- 
sion is  determined  by  the  length  of  service  and 
not  by  position  or  salary.  Any  teacher  may 

39 


retire  and  become  a  beneficiary  who  has  taught 
for  a  period  aggregating  30  years,  one-half  of 
which  period  has  been  spent  in  the  schools  of 
Cleveland.  Such  a  teacher  is  entitled  to  receive 
annually  $12.50  for  each  year  of  service  as  a 
teacher,  except  that  the  maximum  amount  re- 
ceived in  any  case  may  not  exceed  $450. 

The  foregoing  is  subject  to  a  provision  that  the 
teacher,  in  order  to  receive  a  pension,  must  have 
paid  into  the  pension  fund  $20  for  each  year  of 
service  up  to  a  maximum  of  $600.  In  case  a 
teacher  has  not  been  able  to  pay  this  amount 
"The  Board  of  Trustees  must  withhold  on  each 
month's  payment  20  per  cent  thereof  until  the 
amount  above  provided  for  has  been  thus  con- 
tributed to  the  fund." 

Should  the  Board  of  Education  retire  a 
teacher  because  of  physical  or  mental  disability 
who  has  been  in  service  for  20  years,  one-half  of 
the  time  having  been  spent  in  Cleveland,  that 
teacher  is  entitled  to  a  pension,  the  amount  of 
which  is  determined  by  the  provisions  herein- 
before mentioned. 

A  teacher  voluntarily  retiring  from  the  sys- 
tem at  any  time  is  entitled  to  one-half  of  the 
amount  which  she  has  paid  into  the  pension 
fund,  provided  application  for  it  is  made  within 
three  months  of  her  resignation.  If,  on  the 
other  hand,  a  teacher  is  discharged,  she  is  en- 

40 


titled  to  a  refund  of  the  entire  amount  paid  into 
the  fund. 

An  average  of  only  10  teachers  annually  have 
gone  on  the  pension  list  since  its  establishment, 
consequently,  at  the  present  time  the  pension 
fund  is  more  than  sufficient  to  meet  the  demands 
made  upon  it.  However,  the  margin  between 
the  income  and  the  outgo  will  tend  to  become 
less  and  less  as  the  number  of  beneficiaries  in- 
crease, and  until  the  number  added  each  year 
does  not  greatly  exceed  the  number  dropped.  Of 
course  the  number  added  each  year  will  normally 
exceed  the  number  dropped  so  long  as  the  school 
system  of  Cleveland  continues  to  grow.  The 
actual  increase  now  exceeds  the  normal  increase 
above  referred  to,  and  will  continue  to  do  so  for 
a  number  of  years  to  come  because  the  pension 
fund  is  still  very  young. 

SEX  OF  TEACHERS 

The  fact  that  there  is  only  one  male  teacher  re- 
ported in  the  group  of  elementary  teachers  or 
principals  is  of  interest.  This  is  especially  note- 
worthy in  view  of  the  fact  that  Cincinnati  has 
been  increasing  the  number  of  male  teachers  in 
the  elementary  school.  In  the  year  1913,  ac- 
cording to  the  Bulletin  of  the  United  States 
Bureau  of  Education,  No.  47,  Cincinnati  em- 

41 


ployed  197  male  elementary  teachers  out  of  a 
total  of  1,063.  "  Principalships  and  assistant 
principalships  are  made  exclusively  male  posi- 
tions, with  increased  salary  as  a  special  conces- 
sion to  secure  men  in  the  service."  This  no 
doubt  explains  the  fact  that  almost  90  per  cent 
of  the  principals  of  Cincinnati  are  receiving 
$1,800  or  more  as  compared  with  $1,320  in 
Cleveland,  and  that  50  per  cent  of  the  principals 
of  Cincinnati  are  receiving  $2,200  or  more,  as 
compared  with  $1,560  in  Cleveland.  Boston, 
Baltimore,  Chicago,  Detroit,  New  York,  Phila- 
delphia, and  Washington,  all  have  men  teachers 
in  the  elementary  schools  varying  from  59  in 
Washington  to  1,093  in  New  York.  Out  of 
70  principals  in  Boston,  there  are  only  seven 
women. 

In  the  high  schools  Cleveland  has  followed  the 
practice  of  other  cities  in  employing  slightly 
more  men  than  women.  It  is  interesting  to  note 
that  Cleveland  conforms  to  the  practice  through- 
out the  country  in  the  sex  distribution  of  high 
school  teachers,  and  departs  sharply  therefrom 
in  the  sex  distribution  of  elementary  school 
principals. 

EXPERIENCE  OF  TEACHERS 
In  any  analysis  of  working  conditions  in  institu- 
tions, it  is  desirable  to  know  something  about 

42 


the  extent  of  experience  of  the  persons  engaged 
in  doing  the  work.  How  long  have  the  teachers 
of  Cleveland  taught?  What  is  the  experience 
of  the  principals?  Every  citizen  of  Cleveland 
should  be  interested  in  knowing  the  answers  to 
these  questions,  since  the  experience  of  the 
teachers  may  be  so  limited  as  to  indicate  a  low 
quality  of  work.  On  the  other  hand,  their  ex- 
perience may  be  of  such  duration  as  to  limit  the 
efficiency  of  the  schools.  Table  10  shows  the 
distribution  of  the  total  teaching  experience  of 
elementary  and  high  school  teachers. 

This  table  should  be  read  as  follows :  Of  the 
1,989 elementary  teachers  reported,  111  have  had 
one  year  of  experience,  113  two  years,  115  three 
years.  Running  down  the  column  we  find  that  one 
teacher  is  teaching  with  an  experience  of  49  years, 
one  of  48,  one  of  43,  and  so  on.  The  median 
elementary  teacher  has  had  about  10  years'  ex- 
perience. Stating  it  another  way,  half  of  the 
teachers  have  taught  10  years  or  longer;  one- 
fourth  of  the  teachers  have  taught  18  years  or 
longer,  while  one-fourth  of  the  teachers  have 
taught  five  years  or  less.  It  is  interesting  to  note 
the  similarity  in  terms  of  experience  between  the 
teacher  in  high  school  and  the  elementary  school. 
The  median  term  of  experience  is  about  11  years, 
which  is  a  year  more  than  that  for  the  elemen- 
tary teacher.  The  range  of  distribution  is  nine 
43 


TABLE  10.— TOTAL  TEACHING  EXPERIENCE  OF  ELEMENTARY 
AND  HIGH  SCHOOL  TEACHERS 


Years  of 
experience 

Elementary 
teachers 

High  school 
teachers 

All  teachers 

1 

111 

9 

120 

2 

113 

13 

126 

3 

115 

10 

125 

4 

120 

19 

139 

6 

95 

14 

109 

6 

89 

26 

115 

7 

96 

20 

116 

8 

96 

21 

117 

9 

96 

19 

115 

10 

99 

18 

117 

11 

80 

12 

92 

12 

78 

10 

88 

13 

67 

17 

74 

14 

60 

16 

76 

15 

62 

14 

76 

16 

67 

6 

73 

17 

50 

12 

62 

18 

52 

9 

61 

19 

52 

10 

62 

20 

49 

8 

57 

21 

35 

6 

41 

22 

21 

7 

28 

23 

40 

6 

46 

24 

30 

4 

34 

25 

37 

6 

43 

26 

29 

3 

32 

27 

27 

2 

29 

28 

17 

5 

22 

29 

19 

5 

24 

30 

21 

3 

24 

31 

12 

5 

17 

32 

12 

5 

17 

33 

6 

4 

10 

34 

13 

13 

35 

5 

*3 

8 

36 

6 

4 

10 

37 

7 

1 

8 

38 

3 

4 

7 

39 

3 

1 

4 

40 

3 

2 

5 

41 

2 

2 

42 

1 

1 

43 

1 

1 

48 

1 

1 

49 

1 

1 

Total 

1,989 

359 

2,348 

44 


years  less .  One-fourth  of  the  high  school  teachers 
have  had  19  years  of  experience  or  more,  and 
one-fourth  have  had  six  years  experience  or 
less. 

We  may  express  this  fact  in  a  different  way  by 
saying  that  one-half  of  the  elementary  teachers 
in  the  Cleveland  schools  have  had  between  five 
and  18  years  of  experience.  One-half  of  the  high 
school  teachers  have  had  between  six  years  and 
19  years  of  experience.  The  experience  of  ele- 
mentary teachers  in  Cleveland  is  not  strikingly 
different  from  that  found  in  other  large  cities. 
It  is  the  same,  for  example,  as  that  of  the 
teachers  of  New  York  City.  Three-fourths  of 
the  teachers  in  the  high  schools  in  cities  of  50,000 
or  over  on  the  accredited  list  of  the  North  Cen- 
tral Association  of  Colleges  and  Secondary 
Schools  have  had  five  years'  experience  or  less. 
This  would  seem  to  indicate  that  the  teachers 
in  Cleveland  high  schools  are  somewhat  more 
experienced  than  the  teachers  of  the  high 
schools  in  other  cities. 


EXPERIENCE  OF  PRINCIPALS 
Table  11  shows  the  distribution  of  the  total  years 
of  experience  of  elementary  principals  in  Cleve- 
land: 

45 


TABLE  11— TOTAL  TEACHING  EXPERIENCE  OF  ELEMENTARY 
PRINCIPALS 


Years  of 

Number  of 

experience 

principals 

13 

1 

17 

1 

18 

2 

19 

1 

20 

1 

21 

2 

22 

1 

23 

3 

24 

2 

25 

5 

26 

2 

27 

4 

28 

4 

30 

5 

31 

5 

32 

9 

33 

6 

34 

4 

35 

4 

36 

7 

37 

2 

38 

5 

39 

7 

40 

2 

41 

1 

44 

2 

46 

2 

50 

3 

57 

1 

Total 

94 

This  table  becomes  clear  when  read  as  follows: 
Cleveland  employs  one  principal  with  13  years' 
experience,  one  with  17  years'  experience,  two 
with  18  years'  experience,  one  with  57  years' 
experience,  three  with  50  years'  experience.  The 
median  experience  of  principals  is  32  years, 

46 


which  means  that  half  of  the  principals  of  the 
elementary  schools  of  Cleveland  have  had  32 
years  or  more  of  experience.  One-fourth  of  the 
principals  have  had  37  years  of  experience  or 
more,  and  one-fourth  have  had  27  years  of  ex- 
perience or  less.  Expressed  in  another  way,  half 
of  the  principals  have  had  between  27  and  37 
years  of  experience. 

The  fact  that  the  median  experience  of  the 
elementary  teachers  is  10  years,  and  the  median 
experience  of  elementary  principals  is  32  years, 
and  that  no  principal  has  had  less  experience 
than  13  years,  leads  to  the  generalization  that 
the  expectancy  of  becoming  a  principal  of  ele- 
mentary schools  in  Cleveland  is  limited  to  those 
who  have  stayed  in  the  system  for  a  long  time. 
It  has  become  a  traditional  practice  in  Cleveland 
to  appoint  teachers  to  principalships  on  the  basis 
of  seniority  rather  than  on  the  basis  of  prepara- 
tion and  professional  qualification.  In  view  of 
this  it  may  be  safe  to  hazard  the  opinion  that 
the  elementary  school  principals  in  Cleveland 
are  likely  to  be  somewhat  conservative  in  regard 
to  the  administration  of  education. 

TENURE  OF  ELEMENTARY  AND  HIGH  SCHOOL 

TEACHERS 

Table  12  shows  the  length  of  service  among  ele- 
mentary and  high  school  teachers  in  Cleveland. 

47 


TABLE  12.— LENGTH  OF  TEACHING  EXPERIENCE  IN  CLEVE- 
LAND OF  ELEMENTARY  AND  HIGH  SCHOOL  TEACHERS 


Years  of 
experience 

Elementary 
teachers 

High  school 
teachers 

All  teachers 

1 

204 

26 

230 

2 

198 

46 

244 

3 

136 

24 

160 

4 

117 

31 

148 

5 

115 

29 

144 

6 

88 

24 

112 

7 

89 

26 

115 

8 

95 

14 

109 

9 

78 

8 

86 

10 

96 

13 

109 

11 

63 

10 

73 

12 

81 

12 

93 

13 

52 

12 

64 

14 

45 

14 

59 

15 

57 

6 

63 

16 

42 

5 

47 

17 

40 

4 

44 

18 

45 

8 

53 

19 

40 

1 

41 

20 

44 

11 

55 

21 

36 

4 

40 

22 

19 

2 

21 

23 

32 

3 

35 

24 

21 

21 

25 

26 

'i 

27 

26 

23 

3 

26 

27 

23 

1 

24 

28 

14 

4 

18 

29 

11 

3 

14 

30 

14 

4 

18 

31 

5 

1 

6 

32 

6 

2 

8 

33 

4 

1 

5 

34 

12 

12 

35 

3 

"l 

4 

36 

2 

2 

4 

37 

4 

4 

38 

2 

"2 

4 

39 

3 

3 

40 

2 

"l 

3 

41 

2 

2 

Total 

1,989 

359 

2,348 

48 


This  table  should  be  read  as  follows:  204  ele- 
mentary teachers  are  teaching  their  first  year  in 
Cleveland;  198  their  second  year;  136  their 
third  year;  two  teachers  have  taught  41  years, 
two  40  years,  three  39  years,  and  so  on.  The 
median  tenure  is  eight  years.  Among  the  high 
school  teachers  26  are  teaching  their  first  year, 
46  their  second  year,  one  has  taught  40  years, 
and  two  have  taught  38  years.  The  median 
tenure  is  six  years. 

One-fourth  of  the  elementary  teachers  have 
been  teaching  in  Cleveland  for  15  years  or 
longer.  One-fourth  of  the  high  school  teachers 
have  been  teaching  in  Cleveland  for  13  years  or 
longer. 

AGES  OF  TEACHERS 

Considerable  interest  attaches  to  the  question 
as  to  whether  or  not  the  teachers  in  Cleveland 
are  young  or  old.  Are  they  so  young  that  they 
are  unable  to  bear  properly  the  responsibility  of 
training  the  future  citizens  of  Cleveland?  Are 
they  so  old  that  they  have  lost  sympathy  with 
the  ideals  of  childhood  and  are  out  of  touch  with 
the  ideals  of  modern  citizenship?  Table  13  is  a 
distribution  table  of  the  ages  of  elementary  and 
high  school  teachers. 

This  table  becomes  clear  when  read  as  follows : 
Of  the  1,989  elementary  teachers  four  are  19 
4  49 


TABLE  13.— AGES  OF  ELEMENTARY  AND  HIGH  SCHOOL 
TEACHERS 


Years  of 

Elementary 

High  school 

All  teachers 

age 

teachers 

teachers 

19 

4 

4 

20 

30 

"l 

31 

21 

85 

1 

86 

22 

98 

98 

23 

109 

"l 

110 

24 

103 

8 

111 

25 

81 

8 

89 

26 

88 

19 

107 

27 

75 

12 

87 

28 

106 

13 

119 

29 

85 

15 

100 

30 

76 

15 

91 

31 

79 

16 

95 

32 

61 

17 

78 

33 

48 

16 

64 

34 

60 

18 

78 

35 

74 

15 

89 

36 

66 

19 

85 

37 

41 

9 

50 

38 

60 

8 

68 

39 

63 

13 

76 

40 

58 

15 

73 

41 

42 

7 

49 

42 

42 

5 

47 

43 

44 

12 

56 

44 

35 

4 

39 

45 

42 

12 

54 

46 

32 

7 

39 

47 

27 

10 

37 

48 

38 

6 

44 

49 

18 

8 

26 

50 

15 

6 

21 

51 

9 

3 

12 

52 

21 

6 

27 

53 

13 

7 

20 

54 

8 

4 

12 

55 

8 

6 

14 

56 

9 

4 

13 

57 

9 

3 

12 

58 

5 

2 

7 

59 

2 

2 

60 

8 

"4 

12 

61 

3 

3 

62 

1 

1 

63 

3 

"l 

4 

64 

1 

1 

65 

2 

2 

66 

1 

1 

67 

1 

1 

68 

1 

1 

69 

1 

1 

70 

1 

1 

Total 

1,989 

359 

2,348 

50 


years  of  age,  30  are  20  years  of  age,  85  are  21 
years  of  age,  and  so  on;  one  67  years  of  age,  one 
66  years  of  age,  and  two  65  years  of  age.  The 
median  age  of  the  elementary  teacher  is  31  years, 
which  means  that  half  of  the  teachers  are  31 
years  or  older,  or  31  years  or  less;  one-fourth 
of  the  teachers  are  39  years  or  older;  one-fourth 
are  25  years  or  younger.  The  middle,  50  per 
cent,  of  the  teachers  are  between  25  years  and 
39  years.  Among  the  high  school  teachers  one 
is  20,  one  21,  one  70,  the  median  age  being  36. 
One-fourth  of  the  high  school  teachers  are  45 
years  or  older;  one-fourth  are  30  years  or 
younger;  the  middle  50  per  cent  of  the  high 
school  teachers  are  between  the  ages  of  30  and 
45  years.  The  age  distribution  of  the  Cleveland 
teachers  is  about  the  same  as  that  of  the  teachers 
in  New  York  City.  The  difference  in  the  median 
age  of  high  school  and  elementary  teachers  is 
no  doubt  due  to  the  difference  in  the  amount  of 
training  of  these  two  classes  of  teachers. 


AGES  OF  PRINCIPALS 

Table  14  shows  the  ages  of  elementary  princi- 
pals. 

This  table  becomes  clear  when  read  as  follows  : 
One  elementary  principal  is  32  years  of  age,  one 
36,  one  38,  one  73,  one  74.  Of  the  94  principals 

51 


listed,  half  are  52  years  of  age  or  older;  one- 
fourth  are  57  years  or  older;  one-fourth  are  47 
years  or  younger.  The  middle  50  per  cent  of 
these  principals  are  between  the  ages  of  47  and 
57  years. 


TABLE  14.— AGES  OF  ELEMENTARY  PRINCIPALS 


Years 

Number  of 

of  age 

principals 

32 

1 

36 

1 

38 

1 

39 

1 

40 

1 

42 

1 

43 

4 

44 

4 

45 

2 

46 

4 

47 

4 

48 

4 

49 

4 

60 

6 

51 

7 

52 

2 

53 

6 

54 

7 

55 

3 

56 

4 

57 

4 

58 

6 

59 

3 

60 

3 

62 

1 

64 

3 

66 

1 

68 

2 

69 

2 

73 

1 

74 

1 

Total 

94 

52 


In  many  instances  there  is  a  striking  contrast 
between  the  professional  attitude  of  the  prin- 
cipals who  are  50  years  of  age  or  younger  and 
that  of  the  principals  who  are  50  years  of  age  or 
older.  In  other  words,  there  is  a  deep  educa- 
tional significance  in  the  fact  that  one-fourth  of 
the  elementary  principals  are  57  years  old  or 
older. 


EDUCATION  OF  ELEMENTARY  AND  HIGH  SCHOOL 

TEACHERS 

It  has  become  the  universal  practice  of  America 
to  set  up  certain  arbitrary  educational  qualifi- 
cations for  the  position  of  teachers.  These  quali- 
fications are  checked  either  by  examination  or 
by  reports  on  teaching. 


Diagram  4. — Professional  training  of  elementary  teachers  in 


Cleveland 

53 


Table  15  shows  a  distribution  of  the  various 
types  of  schooling  for  the  different  classes  of 
teachers.  No  reports  came  from  some  teachers. 

This  table  becomes  clear  when  read  as  follows : 
Of  those  reporting,  1,435  of  the  elementary  teach- 
ers have  had  elementary,  high,  and  normal  school 
training;  71  have  had  elementary  school,  high 
school,and  college  training ;  159  have  had  element- 
ary and  high  school  training  only.  Among  the 
high  school  teachers,  25  have  had  elementary, 
high,  and  normal  school  training  only;  208  have 
had  elementary,  high,  and  college  training  only. 


TABLE  15.— GENERAL  AND   PROFESSIONAL  EDUCATION  OF 
ELEMENTARY  AND  HIGH  SCHOOL  TEACHERS 


Elemen- 

High 

Education 

tary 

school 

All 

teachers 

teachers 

teachers 

Elementary,  high,  and  normal 

1,435 

25 

1,460 

Elementary,  high,  and  college 

71 

208 

279 

Elementary  and  high 

159 

14 

173 

Elementary,  high,  normal,  and  college 

63 

63 

126 

Elementary,  high,  normal,  and  part  of 

college 

71 

7 

78 

Elementary,  high,  and  part  of  college 

64 

13 

77 

Elementary,  high,  and  part  of  normal 

33 

2 

35 

Elementary  and  part  of  high 

22 

5 

27 

Elementary  only 

10 

12 

22 

Elementary,  high,  part  of  college,  part 

of  normal 

17 

1 

18 

Elementary  and  normal 

12 

2 

14 

Elementary,  part  of  high,  and  part  of 

normal 

11 

1 

12 

Elementary,  high,  college,  and  part  of 

normal 

5 

5 

10 

Elementary,  normal,  and  part  of  high 

8 

1 

9 

Elementary  and  part  of  normal 

5 

5 

Normal  only 

3 

3 

Total 

1,989 

359 

2,348 

54 


It  may  be  seen  that  there  are  71  teachers  in 
the  elementary  schools  who  have  not  completed 
a  high  school  course,  and  326  who  have  had  no 
normal  school  training;  21  of  the  high  school 
teachers  have  not  completed  a  high  school 
course.  Eighty-three,  or  almost  one-fourth,  of 
the  high  school  teachers  are  not  graduates  of 
colleges  and  thus  do  not  come  up  to  the  cus- 
tomary standard  of  college  graduation. 


HIGH  SCHOOL  TEACHERS 

College  graduate* 

78  par  cent 


Diagram  5. — College  education  of  high  school  teachers  in 
Cleveland 


EDUCATIONAL  AND  PROFESSIONAL  PREPARATION 

OF  ELEMENTARY  PRINCIPALS 
Table  16  shows  the  educational  and  professional 
preparation  of  elementary  principals. 

This  table  should  be  read  as  follows :  63  of  the 
elementary  principals  have  completed  the  work 

55 


TABLE    16.— EDUCATIONAL   AND    PROFESSIONAL    PREPARA- 
TION OF  ELEMENTARY  PRINCIPALS 


Education 

Number 

Elementary,  high,  and  normal 
Elementary  and  high 
Elementary  and  part  of  high 
Elementary,  high,  and  college 
Elementary  and  normal 
Elementary,  high,  normal,  and  part  of  college 
Elementary,  high,  and  part  of  normal 
Elementary,  high,  part  of  normal,  and  part  of  college 
Elementary,  part  of  high,  and  normal 
Elementary,  high,  and  part  of  college 
No  school 

63 

14 
4 
3 
2 
2 
2 
1 
1 
1 
1 

Total 

94 

in  the  elementary,  high,  and  normal  school;  14 
in  the  elementary  and  high  school;  and  so  on. 
Only  three  are  college  graduates;  eight  have  not 
completed  a  high  school  course;  26  have  not 
completed  a  normal  course. 


ELEMENTARY  PRINCIPALS 

Normal  graduates 
73  per  cent 


Diagram  6. — Professional  training  of  elementary  principals 
in  Cleveland 

56 


TEACHERS  TRAINED  IN  CLEVELAND 
In  view  of  the  recent  investigations  which  have 
been  made  by  the  United  States  Commissioner 
of  Education  concerning  the  selection  of  teachers 
trained  in  the  local  schools,  it  is  important  to 
know  the  extent  of  that  practice  in  Cleveland. 

Of  the  1,989  elementary  school  teachers,  1,650 
or  83  per  cent,  have  received  all  of  then1  educa- 
tion, except  summer  school  work,  in  Cleveland. 
Of  the  359  high  school  teachers,  126,  or  35  per 
cent  have  received  all  then*  education,  except 
summer  school  work,  in  Cleveland;  of  the  94 
elementary  principals,  79,  or  84  per  cent,  have 
received  all  of  their  education,  except  summer 
school  work,  in  Cleveland.  Of  the  1,989  ele- 
mentary school  teachers,  1,509  have  taught  only 
in  Cleveland;  of  the  359  high  school  teachers, 
108  have  taught  only  in  Cleveland;  of  the  94 
elementary  principals,  73  have  taught  only  in 
Cleveland.  It  is  clear  from  these  facts  that  the 
majority  of  the  force  in  the  elementary  schools 
of  Cleveland  have  been  educated  in  Cleveland 
and  have  done  all  their  work  in  Cleveland. 

The  policy  of  employing  such  a  large  percent- 
age of  principals  and  teachers  whose  training 
and  experience  have  been  confined  to  the  home 
school  is  clearly  condemned  in  many  cities. 
Mr.  Dixon,  in  his  recommendation  concerning 
Bridgeport's  schools,  writes:  " There  can  be  no 

57 


ELEMENTARY  TEACHERS 

Home  trained 

83  per  cent 


ELEMEKTARY  PRINCIPALS 

Homo  trained 

8U  per  cent 


Diagram  7. — Per  cent  of  elementary  teachers,  high  school 
teachers,  and  elementary  principals  in  Cleveland  who  are 
home  trained  and  not  home  trained 

58 


greater  misfortune  to  any  school  system  than  to 
have  a  steady  inbreeding  of  home  talent.  The 
Board  of  Education  should  insist  upon  the  selec- 
tion of  at  least  one-third  of  the  new  teachers 
each  year  from  outside  of  the  city  limits."  The 
Superintendent  of  Schools  of  Newark  writes:  "I 
have  always  regarded  the  rule  adopted  by  the 
Board  many  years  ago  that  preference  of  ap- 
pointment, whatever  the  relative  excellence  of 
candidates,  must  be  given  to  local  graduates,  is 
not  in  the  interest  of  the  school  system.  I  am 
trying  to  make  this  as  plain  as  I  can,  unpopular 
though  it  may  be  in  some  quarters,  because  I 
feel  that  the  children  in  Newark  deserve  the  best 
teachers  that  can  be  got  for  the  salaries  paid, 
utterly  regardless  of  their  nativity  or  place  of 
abode,  or  the  particular  normal  school  wherein 
they  have  been  educated.  Education  in  the 
United  States  has  made  its  greatest  strides  when 
the  free  interchange  of  teachers  has  been  en- 
couraged by  the  liberal  and  enlightened  policy 
on  the  part  of  the  Board  of  Education.  Inbreed- 
ing— to  use  the  term  derived  from  biology — 
has  been  and  is  both  the  bane  and  blight  of  many 
school  systems  of  this  country." 

Superintendent  Phillips  of  Birmingham  writes 
in  his  annual  report:  "It  is  imperative  that  not 
more  than  one-third  of  the  new  teachers  elected 


59 


each  year  should  be  selected  from  girls  of  the 
local  training  school." 

By  a  Board  ruling  in  Pittsburgh  not  more  than 
60  per  cent  of  the  teachers  can  be  drawn  from 
the  local  training  school.  According  to  the 
United  States  Educational  Bulletin  No.  47, 1914, 
"Akron  does  not  fill  more  than  one- third  of  the 
vacancies  of  the  school  from  the  city,  and  Har- 
risburg  secures  half  its  teachers  from  elsewhere." 
Professor  Cubberly  of  Leland  Stanford  Jr.  Uni- 
versity says:  "It  is  an  almost  necessary  part  of 
a  teacher's  preparation  to  go  away  from  home 
for  at  least  a  part  of  her  training,  to  come  in 
contact  with  other  schools  and  other  methods  of 
work,  and  to  learn  to  think  for  herself  by  rubbing 
up  against  a  difference  in  opinions  of  other 
people." 

EXCEPTIONAL  CASES 

It  would  be  interesting  to  know  the  basis  of  the 
employment  of  certain  teachers  in  Cleveland. 
For  example,  case  No.  20  has  had  four  years' 
elementary  education,  one  of  high  school,  and 
began  teaching  in  Cleveland  last  year  at  the  age 
of  45  after  23  years'  experience.  Case  No.  21 
began  teaching  in  Cleveland  at  the  age  of  46 
after  four  years'  experience  elsewhere.  Case 
No.  22  went  seven  years  to  elementary  school, 
one  to  normal  school, — not  graduating  from 

60 


either, — and  entered  the  Cleveland  schools  at 
the  age  of  35  after  four  years'  experience  else- 
where. Case  No.  23,  a  high  school  graduate, 
began  work  in  Cleveland  one  year  ago  at  the  age 
of  45,  after  four  years'  experience  in  the  rural 
schools.  Case  No.  24,  a  high  school  graduate, 
began  teaching  in  Cleveland  at  the  age  of  52, 
after  17  years'  experience  elsewhere.  Case  No. 
25  attended  normal  one  year  and  college  two 
years  without  graduating  from  either;  began 
teaching  in  Cleveland  six  years  ago  at  the  age 
of  62  after  14  years'  experience  elsewhere.  Case 
No.  72  attended  elementary  school  six  years, 
began  teaching  in  Cleveland  five  years  ago  at  the 
age  of  37  after  10  years'  experience  elsewhere. 
It  does  not  necessarily  follow  that  the  appoint- 
ment of  such  teachers  as  those  above  mentioned 
is  unwise.  However,  in  view  of  the  necessity  to 
safeguard  the  education  of  the  children  and  the 
funds  of  the  public,  it  is  imperative  that  every 
appointment  of  the  teaching  force  be  scrutinized 
on  the  basis  of  whether  or  not  the  appointee  is 
up  to  the  standard  required  for  the  city.  The 
employment  of  a  staff  as  large  as  the  one  in 
Cleveland  makes  it  necessary  that  a  somewhat 
rigid  standard  of  entrance  be  enforced  in  order 
to  minimize  the  danger  of  abuses  in  one  way  or 
another. 


61 


THE  PENSION  FUND  AND  TEACHERS  WHO 

ENTER  LATE 

There  is  another  reason  why  the  school  system 
should  exercise  great  care  in  bringing  into  the 
force  teachers  who  are  no  longer  young.  This  is 
the  serious  effect  which  the  employment  of  such 
teachers  will  have  on  the  future  of  the  pension 
fund.  Figures  for  10  recent  appointments  of 
teachers  from  outside  of  Cleveland  show  that 
their  average  age  is  43  and  that  they  have  had  an 
average  teaching  experience  of  16  years.  With 
respect  to  the  future  of  the  pension  fund,  there 
is  a  great  difference  between  the  employment  of 
such  a  teacher  and  bringing  into  the  force  a 
teacher  who  has  recently  graduated  from  a  nor- 
mal school  and  had  a  year  or  two  of  teaching 
experience. 

Some  idea  of  the  quantities  involved  may  be 
gained  from .  a  study  of  the  actuarial  tables  pre- 
sented in  the  report  of  the  Teachers'  Retire- 
ment Fund  of  New  York  City  published  in  1915. 
A  comparison  of  age  and  experience  figures  for 
the  teaching  forces  of  Cleveland  and  New  York 
shows  that  the  lower  quartile,  the  median,  and 
the  upper  quartile  for  the  distribution  showing 
the  ages  of  the  Cleveland  teachers  exactly  cor- 
respond with  the  similar  figures  for  those  of  the 
teaching  forces  of  New  York  City.  Similarly, 
the  corresponding  figures  of  the  distribution 

62 


showing  the  teaching  experience  of  the  teachers 
here  correspond  with  those  showing  the  teaching 
experience  in  New  York  City.  Hence  we  may 
feel  fairly  safe  in  using  the  New  York  actuarial 
tables  in  making  a  prediction  concerning  the 
teaching  force  in  this  city.  On  this  basis  we 
may  study  the  probabilities  concerning  the 
teachers  who  enter  the  Cleveland  force  at  about 
the  age  of  21  as  compared  with  those  of  teachers 
brought  in  at  about  the  age  of  43. 

Such  a  comparison  shows  that  only  about  one- 
third  of  the  teachers  entering  at  the  younger 
age  will  remain  in  the  teaching  profession  long 
enough  to  qualify  for  a  pension.  On  the  other 
hand  eight  out  of  nine  of  those  who  come  in  at 
the  age  of  43  will  complete  their  term  of  service 
and  will  be  eligible  for  pension  benefits. 

Taking  into  account  the  payments  to  the  fund 
made  by  all  of  the  teachers  entering  at  the 
different  ages,  the  refunds  made  to  those  who 
resign,  the  proportion  of  survivors  who  become 
eligible  for  pensions,  and  the  expectancy  of  life 
after  beginning  to  participate  in  the  pension 
benefits,  a  careful  computation  shows  that  the 
risk  involved  by  the  pension  fund  for  teachers 
employed  at  the  age  of  21  amounts  to  about 
$130  for  each  year  of  teaching  service  actually 
rendered,  while  the  corresponding  risk  for 
teachers  employed  at  the  age  of  43  amounts  to 

63 


64 


about  $330  for  each  year  of  teaching  service 
actually  rendered. 

The  salaries  paid  to  teachers  are  really  of  two 
sorts, — present  salary  paid  from  month  to  month 
while  the  teacher  is  in  active  service,  and  de- 
ferred salary  which  is  paid  as  pension  benefits. 
In  the  case  of  the  teachers  brought  in  from  out- 
side at  the  age  of  43,  the  probabilities  are  that 
the  deferred  salary  will  be  so  large  in  aggregate 
amount  that  each  year  of  teaching  service  ren- 
dered will  cost  the  city  $200  more  than  it  would 
if  the  teachers  were  about  20  years  younger. 
The  Board  would  surely  deem  it  a  great  hard- 
ship if  it  were  now  forced  to  pay  these  outside 
teachers  with  their  meager  qualifications  $200 
per  annum  more  than  the  standard  salaries  paid 
to  graduates  of  the  local  Normal  School.  Never- 
theless this  is  what  it  is  actually  doing  and  re- 
ceiving no  adequate  benefit  for  its  heavy  invest- 
ment. For  this  reason,  as  well  as  from  considera- 
tions of  the  welfare  of  the  children,  every  en- 
deavor should  be  made  to  insist  on  high  qual- 
ifications and  relative  youth  as  requisites  for 
admitting  new  members  to  the  teaching  force. 


MARRIED  TEACHERS 

Article  K  of  Section  VI,  page  18,  of  the  1915 
rules  governing  the  Board  of  Education  reads : 
5  65 


"Marriage  of  a  teacher  shall  be  considered  the 
equivalent  of  the  resignation  of  her  position." 
Thus,  a  teacher  who  marries  in  the  Cleveland 
school  is  required  to  resign  immediately.  In 
most  cases,  however,  she  is  reappointed  at 
once  as  a  substitute  teacher.  She  does  her 
work  as  before  with  a  slight  reduction  of  salary. 
So  far  as  her  position  in  the  school  is  concerned, 
she  bears  in  effect  no  different  relation  after 
marriage  than  before.  However,  under  the  pro- 
visions of  the  substitute  appointment,  she  can 
be  dropped  any  day.  There  are  at  least  250  such 
appointments  in  the  city  of  Cleveland  at  the 
present  time.  There  are  also  some  teachers  who 
do  not  wish  steady  employment  and  so  remain 
on  the  substitute  list  indefinitely  in  order  that 
they  may  have  an  opportunity  to  go  back  into 
the  service  of  the  schools  in  case  they  should 
ever  desire  to  do  so.  They  arrange  to  teach  a 
few  days  each  year  in  order  to  keep  their  certifi- 
cates valid. 

It  is  reported  in  Bulletin  47,  1914,  of  the 
United  States  Bureau  of  Education  that,  "Of 
the  cities  having  more  than  100,000  population, 
10  seem  to  place  no  limitation  upon  married 
teachers.  These  are  Chicago,  Newark,  Los 
Angeles,  Minneapolis,  Indianapolis,  Denver, 
Toledo,  Oakland,  New  Haven,  and  Grand 
Rapids.  In  most  of  the  others  marriage  is  equi- 

66 


valent  to  resignation."  Milwaukee  reports 
occasional  exceptions.  Washington  has  a  few 
"married  teachers."  In  Columbus  the  appoint- 
ment requires  a  two-thirds  vote  of  the  School 
Board. 

Citizens  of  Cleveland  are  concerned  with  the 
efficiency  of  the  schools,  rather  than  with  the 
question  as  to  whether  or  not  the  teachers  are 
married.  However,  if  the  conditions  under 
which  married  teachers  are  employed  are  such 
as  to  discourage  professional  growth,  it  becomes 
a  matter  of  public  concern.  In  the  opinion  of 
the  writer  the  policy  of  employing  a  large  num- 
ber of  married  teachers  on  such  a  basis  as  in- 
dicated above  is  questionable.  With  a  contract 
which  can  be  terminated  any  day,  there  is 
small  likelihood  that  the  teacher  will  be  ag- 
gressive in  the  matter  of  preparing  for  a  larger 
professional  usefulness  in  the  school  system  by 
means  of  professional  reading,  attendance  at 
summer  sessions,  and  the  like.  Surely  the  Cleve- 
land schools  have  more  to  gain  either  by  refus- 
ing to  employ  married  teachers  or  by  employ- 
ing them  without  discrimination,  thus  giving 
them  the  same  incentive  for  superior  service 
and  improvement  as  that  given  to  any  other 
teacher. 


67 


TRAINING  IN  SERVICE 

The  Board  of  Education  has  a  rule  concerning 
professional  study  which  reads:  "All  teachers 
will  be  diligent  students  of  the  science  and  art 
of  education  through  the  use  of  the  pedagogical, 
as  well  as  other  departments  of  the  public  li- 
brary and  the  standard  periodicals  of  the  day. 
All  opportunities  for  special  or  general  culture 
which  are  within  their  reach  and  means  should 
be  employed  for  the  furtherance  of  this  end." 

While  this  is  an  excellent  statement  of  the 
ideal  to  be  developed  among  the  Cleveland 
teachers,  there  are  no  data  available  to  indicate 
the  extent  of  this  type  of  professional  work. 
While  it  is  true  that  something  has  been  done 
in  connection  with  the  organization  of  "ex- 
tension" courses  from  the  neighboring  state 
normal  training  school  and  the  near-by  colleges, 
yet  the  city  school  administration  apparently 
has  not  aggressively  fostered  the  development 
of  this  sort  of  thing  in  recent  years. 

A  good  example  is  seen  in  St.  Louis  where  the 
Board  of  Education  organized  this  work  along 
very  definite  lines.  While  the  work  has  not 
been  compulsory,  the  Board  of  Education  has 
made  provision  for  the  work  and  advertised  it 
in  order  that  the  teachers  might  understand  the 
conditions  under  which  this  work  might  be 
done.  Within  recent  years  more  than  two-thirds 

68 


of  the  grade  teachers  who  are  not  graduates 
of  the  teachers'  college,  and  almost  half  of  those 
who  are,  and  more  than  half  of  the  elementary 
principals,  took  one  or  more  courses  in  the  ex- 
tension work  offered  by  the  training  school. 
Each  course  consisted  of  24  definite  lessons. 
In  1913-14  more  than  60  principals  and  super- 
visors and  more  than  550  elementary  teachers 
took  work.  These  courses  were  given  almost 
entirely  by  the  members  of  the  teaching  force 
in  the  training  schools.  Attractive  offerings 
were  made  to  the  teachers  as  indicated  by  the 
fact  that  37  courses  were  offered  in  1914. 
Special  courses  for  scientific  investigation  of 
problems  of  supervisors  have  been  maintained 
for  years  on  Saturday  mornings  in  St.  Louis. 

In  view  of  the  fact  that  the  teachers  in  Cleve- 
land have  been  so  largely  trained  at  home,  have 
had  so  much  of  their  experience  at  home,  and 
are  relatively  mature,  it  would  seem  highly  ad- 
visable that  the  Board  of  Education  follow  up 
their  suggestion  of  professional  study  by  a  defi- 
nite organization  adequately  financed,  whereby 
teachers  might  be  stimulated  to  a  continuation 
of  professional  growth  by  means  of  extension 
courses.  The  presence  of  a  large  number  of  well- 
trained  men  and  women  instructors  in  the  nor- 
mal school,  colleges,  and  near-by  state  normal 
school  and  the  strong  colleges  and  universities 

69 


within  the  city  makes  it  easily  possible  for  the 
rapid  development  of  strong  extension  courses. 

SUMMER  SCHOOLS 

Within  recent  years  the  number  of  teachers  at- 
tending summer  schools  throughout  the  coun- 
try has  increased  enormously.  Summer  schools 
have  been  the  mecca  for  thousands  of  teachers 
who  have  eagerly  sought  the  inspiration  afforded 
by  this  educational  agency.  The  enthusiasm 
brought  back  from  these  summer  schools  has 
resulted  in  many  instances  in  a  genuine  educa- 
tional awakening  within  the  cities.  Indeed,  some 
boards  of  education  have  gone  as  far  as  to  pro- 
pose an  increase  in  salary  almost  sufficient  to 
bear  the  added  cost  of  attendance  at  these  insti- 
tutions. Almost  three-fourths  of  the  elementary 
teachers  of  Cleveland  have  never  attended  a 
summer  school;  almost  two-thirds  of  the  ele- 
mentary principals  have  never  attended  a  sum- 
mer school.  The  percentage  is  somewhat  higher 
for  the  high  school  teachers,  almost  half  of  whom 
have  attended  at  least  one  summer  school.  The 
Boards  of  Education  of  Chicago  and  St.  Louis 
have  sought  to  develop  strong  summer  classes 
for  all  teachers.  The  teachers  of  New  York  and 
San  Francisco  find  it  easy  to  take  work  in  strong 
educational  institutions  supported  either  by 
endowment  or  by  the  state. 

70 


It  would  seem  worth  while  for  the  city  of 
Cleveland  to  cooperate  with  other  educational 
agencies  nearby  with  the  view  of  developing  a 
strong  and  attractive  summer  course  for  teach- 
ers. While  it  is  true  that  the  teachers  who  have 
had  all  their  experience  and  schooling  in  Cleve- 
land might  be  profited  more  by  going  to  a  sum- 
mer school  outside  of  Cleveland,  yet  there  are 
many  teachers  who  would  find  a  summer  session 
in  Cleveland  a  valuable  means  of  increasing 
professional  equipment. 


TEACHERS'  MEETINGS 

Section  10  of  the  1915  rules  governing  the 
Board  of  Education  reads:  " General  meetings: 
teachers'  meetings  and  grade  meetings  may  be 
called  by  the  superintendent  or  assistant  super- 
intendents from  time  to  time  as  conditions  of 
the  school  and  work  may  necessitate.  Meetings 
of  the  teachers  in  a  school  may  be  called  by  the 
principal  when  needed.  Meetings  for  instruction 
by  the  supervisor  may  be  held  at  such  times  as 
may  be  deemed  advisable  by  the  superintendent. 
Teachers  will  attend  all  meetings  to  which  they 
are  called.  Absence  or  tardiness  will  be  reported 
and  no  excuse  will  be  accepted  in  such  case  save 
as  would  justify  absence  from  the  school  session." 

71 


Here  we  have  a  general  formulation  of  the 
policy  so  far  as  teachers'  meetings  are  concerned. 
However,  it  is  a  fact  that  the  teachers  of  Cleve- 
land have  had  relatively  few  meetings.  Indeed, 
neither  general,  district,  nor  special  meetings 
have  been  common  during  recent  years.  Only 
one  general  meeting  has  been  held  during  the 
present  administration.  District  teachers'  meet- 
ings, bringing  together  all  the  teachers,  are  rare. 
There  are  few  if  any  meetings  calculated  to 
bring  together  all  the  teachers  of  a  given  sub- 
ject,— say  of  Latin  or  English, — as  is  the  case  in 
Cincinnati.  Building  meetings  are  common  in 
the  larger  buildings,  although  some  of  the  smaller 
buildings  have  no  such  meetings.  Grade  and 
department  meetings  in  each  district  are  held 
from  time  to  time. 

Teachers  are  not  permitted  to  dismiss  early 
in  order  that  they  may  have  an  opportunity 
to  attend  these  meetings.  The  general  feeling 
among  the  teachers  and  principals  seems  to  be 
that  these  meetings  are  a  benefit  but  that  they 
are  also  a  burden,  so  much  so,  indeed,  that  there 
is  a  noticeable  degree  of  hesitation  about  calling 
such  meetings. 

Here  again  the  Board  authorizes  such  meet- 
ings but  does  not  provide  definite  facilities  for 
the  sake  of  their  encouragement.  If  these  meet- 
ings are  a  factor  in  the  improvement  of  the 

72 


Cleveland  schools,  conditions  should  be  so  ad- 
justed that  the  administrative  officers  will  not 
hesitate  to  call  them.  If  there  is  a  real  grievance 
in  regard  to  these  meetings, — that  is  to  say,  if 
the  teachers  are  not  adequately  paid, — they 
should  be  paid  for  attending  these  meetings, 
either  on  the  plans  adopted  in  some  cities  by 
early  dismissal  on  certain  days  of  the  week,  or 
by  payment  of  one  day  extra  each  month,  as 
is  the  case  in  Indiana,  where  teachers  receive 
pay  for  21  days  each  month  and  are  required  to 
attend  meetings  one  extra  day  each  month.  On 
the  other  hand,  the  teachers  have  no  right  to 
assume  an  attitude  of  self-pity  in  regard  to  at- 
tendance at  these  meetings .  Other  cities  through- 
out the  country  place  a  clear  value  upon  such 
meetings. 

In  the  commercial  and  industrial  world  job- 
bing houses  and  manufacturing  organizations, 
at  stated  times,  call  their  sales  force,  their 
branch  managers  and  others  together  in  order 
that  they  may  get  a  vision  of  their  larger  rela- 
tionships. Surely  there  is  a  decided  value  in 
having  the  teachers  of  Cleveland  brought  to- 
gether from  time  to  time  for  purposes  of  organ- 
ization, to  say  nothing  of  the  value  of  having 
frequent  meetings  for  instruction  and  organiza- 
tion in  smaller  instructional  groups. 


73 


OTHER  MEANS  OF  TRAINING  TEACHERS  IN 

SERVICE 

The  regulations  of  the  Board  permit  teachers  to 
visit  for  one  day  each  year  other  schools  of  the 
city  in  order  to  observe  modes  of  instruction 
and  discipline.  "The  superintendent  may  ex- 
tend the  privilege  of  teachers  to  visit  other  school 
systems  for  one  or  more  days  each  year." 

In  this  connection  it  is  of  value  to  know  what 
some  of  the  other  cities  are  doing.  For  example, 
in  Minneapolis  recently  six  principals  and  an 
eighth  grade  teacher  were  sent  out  by  the  school 
authorities  to  visit  and  report  upon  the  schools 
of  New  York,  Omaha,  St.  Louis,  Kansas  City, 
Boston,  Newtonville,  and  Springfield.  Accord- 
ing to  the  report  made  in  Bulletin  No.  47, 
United  States  Bureau  of  Education,  1914,  the 
superintendent  of  schools  of  Minneapolis  valued 
this  work  highly. 

Indianapolis  has  done  more  than  most  other 
cities  in  this  connection,  however.  Many  years 
ago  a  foundation  fund  was  established  through 
the  munificence  of  Mr.  Thomas  D.  Gregg. 
According  to  the  provision  of  this  bequest  there 
was  a  "perpetual  fund  for  the  advancement  and 
promotion  of  free  schools  in  said  city."  Since 
the  fund  became  available  the  money  has  been 
used  chiefly  in  giving  teachers  special  training 
in  various  institutions.  Between  150  and  200 

74 


teachers  have  received  its  benefits.  Many  have 
attended  summer  schools;  some  have  received 
half  year  scholarships  at  various  universities; 
others  have  studied  in  Europe.  A  part  of  the 
income  has  been  used  recently  to  pay  for  lect- 
ures given  for  the  teachers.  The  experience  of 
Indianapolis  in  this  connection  is  such  as  to 
challenge  public  spirited  citizens  in  other  cities. 
Such  a  fund  would  serve  as  a  Godsend  to  the 
Cleveland  schools. 


PROMOTIONS 

Reference  to  the  Board  rules  in  respect  to  the 
classification  of  teachers  on  the  basis  of  salary 
reveals  the  fact  that  a  teacher  may  be  advanced 
from  one  class  to  another  with  a  fixed  number  of 
years  of  experience  and  the  approval  of  the 
Board  of  Education  after  the  recommendation 
of  the  school  superintendent.  Thus,  in  effect  the 
school  superintendent  is  responsible  for  the  pro- 
motion of  teachers  from  one  salary  classifica- 
tion to  another.  As  a  basis  of  judgment  the 
superintendent  requires  the  principal  and  sup- 
ervisor to  report  on  the  qualifications  of  the 
teachers.  This  report  involves  an  estimate  of 
teaching  ability,  executive  power,  personal  in- 
fluence, professional  sincerity,  general  culture, 
and  evidence  of  professional  growth. 

75 


The  principal  and  supervisor  are  required  to 
fill  out  answers  to  the  questions  indicated  on  the 
form  reproduced  on  the  following  pages. 

promotion  of  Ceacfjcrs 


Office  of  tt>e  Smperintenbent  of  &eboot# 
CletorlanD,  Ohio 

To  THE  PRINCIPAL: 

Please  answer  the  questions  below  concerning: 


.  Grade Present  Salary School, 


and  return  this  blank  to  the  Superintendent's  Office. 

Date  blank  sent 19 

Answer  received 19 

Length  of  service,  total Length  of  service  in  your 

school 

Please  make  the  answers  straightforward  and  unequivocal. 

(The  principal  will  show  this  promotion  sheet  to  teachers, 
individually,  before  it  is  filled  out) 

J.  M.  H.  FREDERICK, 
SUPERINTENDENT  OF  SCHOOLS 


REPORT  UPON  PROMOTION  OF  TEACHERS 

Teaching  Power 

a.  Does  she  apply  thought  and  method  to  the  preparation 

of  her  daily  work? 

b.  Is  she  definite  in  her  instruction? 

Thoughtful? 


c.  Does  she  develop  power  in  her  pupils? . 

d.  What  kind  of  results  does  she  obtain? . 

76 


2     Executive  Power 

a.  Is  she  successful  in  discipline?. 


b.  Does  she  secure  a  responsive  working  spirit  in  her 

school? 

c.  Are  her  relations  with  the  principal's  office  satisfactory 

in  matters  of  reports,  care  of  property,  discipline  of 
pupils,  etc.? 


d.  What  are  her  relations  with  the  patrons  of  the  school? 


e.  What  are  her  strong  points?. 

f.  What  are  her  weak  points?  _ 


3     Personal  Influence 

a.  Does  she  inspire  her  pupils  and  develop  in  them  en- 

thusiasm for  work? 

b.  Does  she  inspire  her  pupils  to  independence  in  work? 

c.  Does  she  influence  her  pupils  for  good  beyond  the  time 

they  are  in  her  presence? 

d.  Are  her  relations  with  other  teachers  in  the  building 

wholesome? 

e.  Is  her  work  interfered  with  by  outside  pleasures  or 

duties  or  the  state  of  her  health? 


4     Professional  Sincerity 

a.  Is  she  sincere  and  earnest  in  her  work? 

b.  Does  she  measure  thoughtfully  the  outcome  of  her 

practice? 

c.  What  is  her  attitude  toward  the  large  interests  of  her 

profession? 


d.  Is  she  frank  and  candid  in  her  dealings  with  pupils? 

e.  In  what  spirit  does  she  receive  the  suggestions  of  the 

principal  and  supervisors? 


Does  she  regard  them  as  personal  or  professional?. 
77 


5    General  Culture 

a.  Are  her  scholarship  and  general  information  accurate 

and  adequate? 

b.  Are  her  manner,  control  of  voice  and  use  of  English 

satisfactory? 

c.  Is  she  alert,  progressive  and  open  minded  to  new  ideas? 

d.  What  are  her  special  interests? 


e.  Has  the  teacher's  work  or  personality  been  sufficiently 
faulty  to  require  serious  criticism? 

Have  you  made  such  criticism? 

How  often? 


With  what  effect? 


PRINCIPAL 


Date 19 

Leave  this  space  for  the  Superintendent. 

a.  Promoted  to  Class, 
ACTION 


d.  Not  Promoted.    Remains  in  Class, 
c.  When  the  Teacher  was  notified 


PROFESSIONAL   GROWTH 


Please  record  below  any  of  the  following  or  other  means  of 
growth  that  the  teacher  has  utilized  during  the  past  four  school 
years,  noting  those  that  have  been  especially  helpful:  Travel, 
summer  classes,  extension  classes,  lectures,  concerts,  special 
studies  in  literature,  history,  music  or  art. 


Teacher 
78 


REPORTS  OF  PROFESSIONAL  GROWTH 
Under  the  head  of  Professional  Growth  all  sorts 
of  evidences  are  submitted.   The  following  are 
typical: 

"Two  trips  up  the  lake." 

"A  trip  through  lower  Canada  and  New 
York." 

"Have  attended  several  travelogues  and 
heard  several  lectures." 

"Have  heard  a  number  of  grand  operas  and 
have  taken  a  course  of  piano  lessons." 

"Have  read  the  current  magazines  and  several 
of  the  books  of  Dickens,  Thackeray,  Eliot,  etc." 

"Have  heard  Madame  Schuman-Heink,  Sem- 
brich,  and  Tetrazzini." 

"Have  heard  the  violinist  Kubelik  and  I  have 
also  attended  symphony  and  harmony  concerts." 

Another  report: — "I  attended  the  National 
Education  Association  at  Boston  in  1911  and  at 
that  tune  traveled  through  the  northeast  states 
and  southeastern  Canada." 

While  it  is  true  that  professional  study  by 
teachers  is  encouraged  and  urged  in  a  board  rule 
and  is  taken  into  account,  nevertheless  it  is  not 
made  a  requisite  of  promotion.  As  a  matter  of 
fact  an  analysis  of  the  evidence  of  professional 
growth  submitted  in  the  reports  for  promotions 
indicates  that  on  the  whole  relatively  little 
emphasis  has  been  placed  upon  it.  This  is  in 

79 


rather  sharp  contrast  to  the  practice  in  St.  Louis, 
Chicago,  and  in  many  other  cities. 

Although  teachers  are  not  promoted  on  the 
salary  list  as  soon  as  and  just  because  they  have 
served  the  time  in  each  class  on  the  salary  sched- 
ule, yet  it  is  a  fact  that  relatively  few  teachers 
fail  of  promotion  at  the  expiration  of  the  time 
limit.  In  1914,  only  20  failed  of  promotion.  In 
1915,  31  failed  of  promotion. 

Perhaps  there  is  justification  for  making  pro- 
motion easy  with  the  present  low  salary  sched- 
ule. It  may  be  that  there  is  justification  for  the 
statement  made  by  one  of  the  principals,  that 
all  teachers  are  recommended  for  promotion  on 
account  of  the  fact  that  the  salaries  were  so  ab- 
surdly low.  However,  in  the  long  run,  it  should 
be  said  that  Cleveland  cannot  hope  to  have  the 
best  possible  teaching  force  until  adequate 
salaries  are  paid  and  an  adequate  system  of  pro- 
motion based  on  evidence  of  growth  in  pro- 
fessional ability  is  established.  The  present 
system  is  not  calculated  to  enable  the  school 
officials  sharply  to  draw  the  line  between  ordin- 
ary and  extraordinary  ability. 

PROMOTIONS  FOB  MERIT  AND  SERVICE 
The  following  quotation  from  Dr.  E.  P.  Cubber- 
ley  well  expresses  the  reasons  why  promotion 
should  be  based  on  merit  as  well  as  on  service. 

80 


"In  any  line  of  work  the  intensity  of  the  de- 
sire for  personal  improvement  is  in  direct  pro- 
portion to  the  stimulus  it  receives.  A  physician, 
a  lawyer,  or  an  engineer  who  lacks  in  professional 
knowledge  finds  himself  unable  to  undertake 
important  cases,  and  increases  his  professional 
equipment  in  order  that  he  may  do  better  work 
and  command  larger  pay.  These  professions, 
being  on  a  competitive  basis,  what  a  man  can 
earn  in  them  depends  upon  what  he  can  con- 
vince others  that  he  is  worth.  Teaching,  on  the 
other  hand,  is  virtually  a  state  monopoly,  into 
which  competitive  conditions  enter  but  slightly. 
All  begin  at  about  the  same  level,  often  all  are 
advanced  in  pay  at  about  the  same  rate,  and 
usually  all  reach  the  maximum  salary  very  early 
in  their  teaching  career. 

"A  teacher  is  no  exception  to  the  rule  that 
most  people  do  their  best  work  under  a  constant 
stimulus  to  professional  activity.  This  stimulus, 
too,  needs  to  be  kept  up  for  a  rather  long  period 
of  time,  until  the  habit  of  keeping  professionally 
active  has  been  well  established.  A  salary 
schedule,  based  only  in  part  on  years  of  service, 
and  with  additional  rewards  for  growth  and  effi- 
ciency after  the  common  maximum  has  been 
reached,  offers  one  of  the  best  means  for  pro- 
viding the  proper  stimulus  for  further  profes- 
sional growth." 

THE  NORMAL  TRAINING  SCHOOL 
The  Normal  Training  School  was  established  in 
1874.    At  the  outset  provision  was  made  for 

6  81 


about  200  students.  There  has  been  little  change 
so  far  as  provisions  for  growth  are  concerned 
since  that  time.  For  many  years  there  have 
been  10  teachers  and  a  principal  on  the  regular 
staff  of  the  school.  From  time  to  time  changes 
have  been  made  in  the  equipment  and  organiza- 
tion. At  present  it  may  be  said  that  the  Normal 
Training  School  is  one  of  the  best  equipped  city 
training  schools  in  the  country.  An  Observation 
School  employing  11  regular  teachers  is  main- 
tained in  connection  with  the  Normal  Training 
School.  In  addition  to  the  Observation  School 
there  are  additional  facilities  for  practice  and 
observation  in  two  other  elementary  schools  in 
the  city.  The  combined  teaching  staff  of  these 
schools  is  about  50.  Each  principal  receives  $200 
extra  annually.  The  teachers  each  receive  $100 
extra.  Thus  it  may  be  seen  that  there  are  about 
70  different  teachers  employed  to  work  more  or 
less  directly  in  connection  with  the  task  of  train- 
ing additional  teachers  for  Cleveland  schools. 
For  the  past  few  years  they  have  been  furnish- 
ing about  100  new  teachers  each  year.  In  view 
of  the  fact  that  there  are  now  more  than  200 
vacancies  annually,  it  is  possible  that  the  fa- 
cilities of  the  Normal  Training  School  should  be 
extended  so  as  to  accommodate  a  larger  number 
of  students.  However,  it  is  by  no  means  certain 
that  over  200  new  teachers  will  be  required  each 

82 


year  in  Cleveland  for  any  length  of  time;  neither 
is  it  desirable  that  all  the  new  teachers  be  trained 
in  Cleveland.  An  expansion  of  the  training 
school  facilities  should  be  made  only  after  a  most 
careful  analysis  of  conditions. 

The  opportunity  to  attend  the  Normal  Train- 
ing School  has  been  somewhat  carefully  guarded 
as  is  shown  from  the  fact  that  students  who  come 
into  it  from  the  high  school  on  certificate  of  the 
principal  must  have  a  general  average  of  85  per 
cent  at  least.  "All  applicants  whose  general 
average  for  the  course  in  the  high  school,  as 
certified  by  the  principal  thereof,  is  below  85 
per  cent,  may  be  admitted  to  the  Normal  School 
on  their  successfully  passing  examinations  con- 
ducted by  the  faculty  of  the  Normal  School  in 
the  following  subjects  of  (the  passing  mark  in 
each  subject  being  75  per  cent)  reading,  writing, 
spelling,  arithmetic,  grammar,  English  composi- 
tion, elementary  geography,  United  States  his- 
tory, United  States  constitution,  ...  As 
many  of  these  students  in  ranking  order,  be- 
ginning with  the  highest,  may  be  admitted  to  the 
Normal  School  as  shall  have  been  determined  by 
the  Superintendent  of  Instruction,  to  be  neces- 
sary to  meet  the  demands  of  the  public  schools." 

The  girls  in  attendance  are  practically  all 
from  the  academic  high  schools.  Apparently 
most  of  them  are  of  American  stock.  At  the 

83 


present  time  the  Normal  Training  School  is  re- 
ceiving practically  all  girls  who  care  to  enter 
and  who  have  the  required  grade  of  85  per  cent. 
There  are  seemingly  very  few  instances  in  which 
a  student  is  advised  not  to  take  the  work. 

The  course  of  study  in  the  training  school 
covers  a  period  of  two  years,  and  includes  the 
ordinary  subject  matter  of  city  training  schools 
— reviews  of  elementary  subjects,  history,  phi- 
losophy, the  principles  of  education,  the  theory 
of  teaching,  school  management,  methods  of 
instruction  and  discipline,  observation  and 
practice  in  the  schools.  At  the  present  time  pro- 
visions for  training  are  as  follows:  Each  girl 
spends  three  months  in  observation,  one  week 
in  each  grade  and  kindergarten,  and  three  weeks 
in  the  grade  which  she  likes  best.  This  is  fol- 
lowed by  three  months  of  practice  in  the  grade 
that  she  has  selected  as  the  one  best  suited  to 
her  individual  capacity. 

The  head  of  the  Normal  Training  School  is 
attempting  to  coordinate  its  activities  with 
those  of  the  two  city  training  schools  and  the 
Observation  School.  Last  year  three  general 
meetings  of  all  the  teachers  and  12  department 
or  grade  meetings  were  held.  A  reading  circle 
was  organized  within  this  group. 

Notwithstanding  the  fact  that  this  Normal 
Training  School  has  been  established  for  40 

84 


years,  records  do  not  seem  to  be  available  show- 
ing the  length  of  time  the  typical  Normal  School 
graduate  remains  in  teaching.  No  records  are 
available  as  to  the  number  who  fail  or  of  the 
number  who  marry.  Indeed,  it  is  most  difficult 
to  get  an  accurate  idea  of  the  expectancy,  so 
far  as  service  is  concerned,  of  this  group  of  100 
teachers  turned  out  by  the  Normal  Training 
School  each  year.  However,  the  present  ad- 
ministration of  the  Normal  School  is  to  be  com- 
mended on  the  fact  that  an  attempt  is  being 
made  to  follow  up  the  work  of  its  graduates 
during  their  first  year  of  service  in  the  public 
schools  in  order  to  get  a  check  on  the  effective- 
ness of  the  work  of  training.  The  members  of 
the  regular  staff  of  the  Normal  Training  School 
are  beginning  to  spend  some  time  in  this  follow- 
up  work  and  the  elementary  principals  are  ap- 
parently very  appreciative  of  this  activity. 


LARGER  OPPORTUNITIES  FOR  THE  NORMAL 

TRAINING  SCHOOL 

In  the  absence  of  adequate  records,  it  is  impos- 
sible to  say  with  any  degree  of  reliability  what 
Cleveland  gets  out  of  her  training  school  other 
than  the  fact  that  it  is  securing  in  round  num- 
bers 100  new  teachers  each  year  who  go  on  the 
probationary  list  at  a  salary  of  $500  annually 

85 


which  will  be  increased  to  $550  after  next  Sep- 
tember. The  answer  to  the  question,  "What 
becomes  of  these  teachers  after  this  first  year?" 
is  not  clear.  However,  even  if  all  of  this  number 
stayed  in  the  schools,  it  would  take  a  generation 
or  more  to  remake  the  teaching  force  by  this 
means. 

If  there  are  any  new  conceptions  of  education 
which  the  teachers  of  the  children  of  the  Cleve- 
land schools  need  to  know,  it  is  not  sufficient 
that  Cleveland  rest  its  case  on  the  training  of 
100  new  teachers  a  year.  Rather  than  this  it 
should  inaugurate  a  system  of  training  teachers 
in  service  through  extension  courses,  study 
centers,  reading  circles,  and  summer  schools. 
Chicago,  St.  Louis,  and  Cincinnati  are  making 
such  attempts  to  stimulate  teachers  who  are 
actually  engaged  in  service. 

It  is  especially  noteworthy  that  there  is  little 
evidence  of  any  attempt  to  train  the  principals, 
either  before  appointment  or  after,  by  means  of 
courses  in  supervision  and  organization.  In 
view  of  the  fact  that  the  typical  elementary 
principal  is  more  than  50  years  of  age  and  has 
had  more  than  30  years'  experience,  it  is  rea- 
sonable to  expect  that  these  members  of  the 
staff  would  be  able  to  profit  enormously  from 
a  well  directed  plan  of  extension  study  of  the 
modern  points  of  view  in  connection  with  super- 

86 


vision  and  organization.  St.  Louis  and  Cincin- 
nati are  doing  effective  work  of  this  kind.  It 
should  be  said  in  this  connection  that  the  present 
head  of  the  Normal  Training  School  is  attempt- 
ing a  move  in  this  direction.  During  the  past 
summer,  through  the  cooperation  of  the  staff 
of  Western  Reserve  University,  an  attractive 
summer  session  program  was  offered.  Almost 
10  per  cent  of  the  elementary  teachers  of  Cleve- 
land were  enrolled.  This  whole  movement  is 
surely  worthy  of  development. 


HEALTH  OP  TEACHERS 

The  candidates  for  entrance  to  the  Normal 
Training  School  are  required  to  furnish  a  health 
certificate  from  a  medical  inspector.  The  Board 
of  Education  has  the  following  rule  concerning 
applicants  for  a  position  as  teacher:  Section  L — 
"The  superintendent  of  instruction  may  require 
of  an  applicant  for  a  position  as  teacher  a  cer- 
tificate from  an  accredited  physician  that  he  or 
she  is  physically  qualified  to  perform  efficiently 
the  duties  of  a  teacher  in  the  Cleveland  public 
schools.  If,  when  required,  such  a  certificate 
is  not  furnished,  the  applicant  shall  be  con- 
sidered ineligible  for  appointment."  In  connec- 
tion with  vaccination  the  following  rule  is  found 
in  the  regulations:  "A  teacher  or  pupil  shall 

87 


not  attend  a  public  school  without  furnishing  a 
certificate  from  the  health  officer  or  some  re- 
putable physician,  approved  by  the  health 
officer,  that  he  or  she  has  been  successfully  vac- 
cinated within  the  last  five  years  or  otherwise 
protected  from  smallpox."  Provision,  however, 
is  made  for  exceptions  to  this  rule  and  so  far  as 
the  evidence  is  available  there  has  been  con- 
siderable latitude  in  the  enforcement  of  these 
provisions. 

The  Board  has  made  definite  provisions  for 
absence  on  sick  leave  as  indicated  by  the  follow- 
ing quotation  from  the  Board  rule:  " Section  I 
— Appointees  of  the  Superintendent  of  Instruc- 
tion shall  receive  pay  for  such  time  as  they  shall 
be  absent  from  duty  on  account  of  personal  ill- 
ness or  quarantine  for  a  period  not  exceeding 
ten  (10)  days  in  any  school  year." 

Teachers  are  not  strikingly  different  from 
other  people  in  the  matter  of  health.  They  are 
subject  to  the  ordinary  infirmities  of  life  so  that 
no  one  need  be  surprised  to  find  instances  of 
physical  infirmity.  There  are  a  few  teachers  who 
are  apparently  close  to  the  borderline  of  physi- 
cal exhaustion;  a  very  few  who  show  symptoms 
of  deafness,  lameness,  and  other  evidences  of 
physical  defect. 

It  is  important  to  note  that  the  number  of 
absences  on  sick  leave  in  Cleveland  is  very  high. 

88 


It  is  reported  from  the  general  office  that  one 
day  last  year  there  were  120  teachers  out  on 
sick  leave.  These  figures  are  very  much  higher 
than  the  figures  reported  for  St.  Louis.  For  ex- 
ample, in  Bulletin  No.  47,  United  States  Bureau 
of  Education,  it  is  reported  that  the  average 
number  of  daily  calls  for  substitutes  in  the  St. 
Louis  schools  varied  from  six  near  the  close  of 
school  to  10  and  11  during  the  winter.  The  high- 
est number  of  calls  any  one  day  was  43.  In  view 
of  the  similarity  in  size  of  these  two  cities  it  is 
surprising  to  find  this  striking  difference  in 
teachers'  absences.  It  should  be  said  in  this  con- 
nection, however,  that  there  are  a  few  teachers 
who  apparently  take  advantage  of  each  day  al- 
lowed for  sick  leave.  The  records  in  the  general 
office  seem  to  indicate  that  some  teachers  have 
taken  the  days  "  off  "  as  students  in  college  some- 
times take  "cuts"  in  class,  feeling  that  they  are 
entitled  to  so  many  days  off. 

The  average  number  of  absences  in  the  teach- 
ing force  on  account  of  illness  in  Cleveland  now 
amounts  to  about  80  absent  for  one  session  each 
day.  Since  a  majority  are  absent  for  both  ses- 
sions of  the  day,  this  means  that  more  than  40 
individuals  are  out  on  account  of  sickness  every 
school  day,  on  the  average.  These  figures  apply 
only  to  those  who  receive  pay  although  absent 
and  the  real  figures  are  largely  in  excess  of  those 

89 


given,  for  many  are  absent  without  pay  and 
many  exceed  the  10  days  of  absence  allowed  and 
paid  for.  Since  the  Board  of  Education  pays 


222 


10.0  days 


182 


Diagram  9. — Number  of  teachers  receiving  pay  for  each 
amount  of  absence  from  one-half  day  to  10  days  in  Cleveland 
in  1913-14 

90 


not  only  the  salary  of  the  absent  teacher  but 
also  that  of  the  substitute  as  well,  the  cost  of 
these  absences  is  large,  amounting  to  over  $200 
a  day  and  to  about  $40,000  per  year  for  services 
which  the  school  system  pays  for  but  does  not 
receive. 

For  some  reason  there  seems  to  be  a  disposi- 
tion to  be  very  sensitive  to  the  necessity  of 
lightening  the  labors  of  the  teacher.  In  talking 
with  a  large  number  of  teachers  and  principals, 
one  hears  constant  reiteration  concerning  the 
long  day  and  the  hard  work.  Many  of  the  prin- 
cipals seem  to  feel  that  teachers  need  a  rest  in 
summer,  on  Saturdays,  and  all  evenings. 

Whether  rightly  or  not,  one  gets  the  impres- 
sion in  visiting  the  new  technical  night  schools 
that  he  is  in  contact  with  a  younger,  more  ag- 
gressive, more  vigorous  set  of  teachers.  This 
may  be  due  to  the  fact  that  these  teachers  work 
under  a  higher  pressure,  longer  day,  closer 
supervision,  higher  salary.  Strange  as  it  may 
seem,  they  are  required  to  punch  a  time  clock 
as  evidence  of  their  time  spent  in  school. 

Whatever  the  causes  of  the  frequent  absences 
on  account  of  illness  may  be,  it  is  clear  that 
Cleveland  cannot  afford  to  have  a  tired  set  of 
teachers  at  work  with  the  younger  children. 
It  is  not  fair  to  the  Cleveland  of  tomorrow  that 
the  children  be  taught  by  teachers  who  are  at 

91 


the  breaking  point  of  fatigue  or  illness.  The 
aggressive,  wide-awake,  and  happy  teacher  is  as 
important  in  the  training  of  children  to  read, 
to  write,  and  to  cipher  as  is  this  type  of  indi- 
vidual in  successfully  serving  the  interests  of 
the  merchant,  the  banker,  or  the  manufacturer. 
It  may  be  that  the  teaching  force  is  not  rigor- 
ously enough  selected  for  the  qualities  of  physi- 
cal vigor.  It  may  be  that  the  length  of  day  re- 
quired is  too  long  or  that  working  conditions  are 
too  strenuous,  or  that  the  fatigue  of  the  weak 
infects  the  others,  but  there  can  surely  be  no 
doubt  of  the  fact  that  the  children  of  Cleveland 
deserve  to  be  taught  by  people  who  are  up  to  the 
top-notch  of  personal  efficiency. 

Pressures  should  not  be  such  as  to  make  a 
superintendent  or  a  principal  hesitate  to  ask  the 
teachers  to  come  together  for  the  purposes  of 
organization  or  professional  advancement.  A 
decade  of  that  type  of  administration  would 
surely  mean  less  than  normal  progress  on  the 
part  of  the  schools. 

The  pension  fund,  established  for  the  purpose 
of  making  it  possible  for  teachers  to  retire  who 
are  advanced  in  age  or  physically  weak,  is  a 
step  in  the  right  direction,  but  owing  to  the 
fact  that  these  stipends  are  so  low,  both  the 
administrative  officers  of  the  school  and  the 
teachers  postpone  retirement  to  the  last  minute. 

92 


In  this  postponement  it  may  easily  happen  that 
a  teacher  is  in  service  for  a  considerable  time 
after  her  service  has  ceased  to  be  effective.  We 
are  all  inclined  to  share  this  sympathetic  atti- 
tude toward  the  teacher,  but  the  40  children 
who  are  assigned  to  her,  in  order  that  they  may 
be  taught  long  division,  reading,  spelling,  geog- 
raphy, and  all  the  rest,  are  entitled  to  even  more 
sympathy.  The  children  cannot  help  them- 
selves. They  must  stay  in  school.  If  the  retire- 
ment fund  in  Cleveland  is  not  sufficient  to  meet 
the  situation,  it  should  be  increased.  The  citi- 
zen of  Cleveland  cannot  afford  to  take  the  risk 
of  having  his  child  taught  by  a  worn-out  teacher. 
The  problem  of  getting  results  with  the  thou- 
sands of  children  and  the  millions  of  dollars  of 
public  money  expended  challenges  the  city  to 
meet  the  retirement  situation  adequately.  Not 
only  is  an  injustice  done  to  the  child,  but  the 
teacher  herself,  who  is  forced  to  drag  out  the 
years  of  infirmity  in  teaching  because  she  cannot 
live  on  the  retirement  fund,  is  not  to  be  envied. 
This  whole  situation  is  one  to  challenge  the  best 
judgment  of  the  city. 

TEACHERS'  CERTIFICATION 
In  order  to  receive  money  from  the  tuition  fund, 
it  is  necessary  that  a  teacher  be  in  possession 
of  a  valid  certificate  of  fitness  for  teaching. 

93 


These  certificates  are  issued  by  the  state,  by  the 
county,  and  by  the  city.  At  the  present  time 
there  seems  to  be  a  tendency  for  each  teacher 
to  hold  a  state  certificate. 

A  graduate  from  an  approved  normal  school, 
teachers'  college,  college,  or  university,  who  has 
completed  a  full  two  years'  academic  and  pro- 
fessional course  in  such  institution  and  who  also 
possesses  a  first  grade  high  school  diploma  or  its 
equivalent,  shall,  upon  application  to  the  super- 
intendent of  public  instruction  and  the  payment 
of  a  fee  of  one  dollar,  be  granted,  without  further 
examination,  a  provisional  elementary  certifi- 
cate, valid  for  four  years,  in  any  school  district 
within  the  state. 

A  graduate  of  a  four  year  academic  and  pro- 
fessional course  shall  be  granted  a  provisional 
high  school  certificate  for  four  years  on  the  same 
conditions  as  above.  A  graduate  of  a  two  years' 
special  course  shall  be  granted  a  special  certifi- 
cate for  four  years  on  the  same  conditions  as 
above. 

To  these  holders  of  provisional  state  certifi- 
cates there  shall  be  issued  by  the  state  board  of 
school  examiners,  without  examination,  a  life 
certificate  of  similar  kind,  on  the  satisfactory 
evidence  that  the  holder  thereof  has  completed 
at  least  24  months  of  successful  teaching,  after 
having  received  a  provisional  certificate. 

94 


The  State  Board  of  School  Examiners  shall 
issue,  without  examination,  a  state  life  high 
school  certificate  to  the  holder  of  a  degree  from 
an  approved  normal  school,  teachers'  college, 
or  university,  upon  satisfactory  evidence  that 
the  holder  thereof  has  completed  at  least  50 
months  of  successful  teaching.  These  certifi- 
cates, when  properly  countersigned,  are  valid 
in  any  school  district  in  the  state. 

The  City  Board  of  School  Examiners  consists 
of  the  city  superintendent  of  schools  and  two 
competent  teachers  serving  full  time  in  the 
day  schools  of  such  city  to  be  appointed  by  the 
city  Board  of  Education  for  a  term  of  two  years. 
The  City  Board  of  School  Examiners  may  grant 
teachers'  certificates  for  one  year  and  three 
years.  These  must  be  regarded  as  provisional 
certificates  and  shall  be  renewed  only  twice 
each.  The  five  year  and  eight  year  certificates 
now  in  force  shall  be  renewed  by  the  State 
Superintendent  on  the  payment  of  a  fee  of  50 
cents.  All  two-year  and  three-year  certificates 
may  be  renewed  by  the  city  examining  board 
on  proof  of  five  years'  successful  teaching  ex- 
perience. 

County  and  city  boards  of  school  examiners 
may,  at  their  discretion,  issue  certificates,  with- 
out formal  examinations,  to  holders  of  certifi- 
cates granted  by  other  city  and  county  boards  of 

95 


school  examiners.  In  practice  the  local  board 
recognizes  the  certificates  granted  by  other 
cities  and  by  Cuyahoga  County,  but  scrutinizes 
closely  certificates  from  other  counties. 

In  July,  1915,  a  distribution  of  certificates 
held  by  Cleveland  teachers  was  as  follows : 

City  State  Total 

Elementary 2,784  509  3,293 

High 441  101  542 

Special  (elementary  and  high)     554  87  641 

Total 3,779  697  4,476 

As  far  as  Cleveland  is  concerned,  three  classes 
of  provisional  certificates  are  issued:  elemen- 
tary, high  school,  and  special.  Provisional  cer- 
tificates are  of  two  grades :  first  grade,  valid  for 
three  years;  second  grade,  valid  for  one  year. 
In  order  to  secure  a  first  grade  certificate,  the 
applicant  must  make  an  average  standing  of  85 
with  no  grade  below  75  and  have  a  successful 
experience  record  of  three  years.  For  the  second 
grade  provisional  certificate  the  average  stand- 
ing required  is  80,  with  no  grade  below  75.  This 
grade  certificate  is  open  to  those  who  have  had 
no  experience. 

A  provisional  special  certificate  for  the  first 
grade  requires  a  minimum  standing  of  85  and  a 
successful  experience  of  two  years.  The  special 
certificate  covers  a  specialty  and  the  theory  of 
that  specialty.  The  following  examination  for 

96 


the  special  certificate  in  manual  training  was 
given  on  January  30,  1915: 

MANUAL  TRAINING   EXAMINATION,   JANUARY   30, 
1915 

Theory 

1.  Give  an  economical  equipment  for  a 
grammar  grade  manual  training  room.  Name 
the  tools  you  would  provide  for  the  individual 
pupil  and  a  dozen  or  more  of  the  most  im- 
portant tools  that  might  be  used  in  common 
by  several  pupils. 

2.  Name  books  or  articles  you  have  read 
that  deal  with  the  theory  or  history  of  manual 
training. 

Woodwork 

1.  (a)  How  and  why  is  a  rip  saw  different 

from  a  cross-cut  saw? 
What  is  a  back  saw? 
(b)  Explain  the  purpose  of  the  cap  iron 
of  a  plane. 

2.  Describe  very  fully  the  steps  you  would 
take  and  the  tools  you  would  use  in  working 
a  piece  of  rough  wood  to  three  finished  di- 
mensions. Use  assumed  dimensions. 

3.  Illustrate  a  "miter"  joint,  a  "housed  or 
dado"  joint,  a  "slip"  joint,  a  common  "dove 
tail"  joint. 

4.  Draw  a  design  for  a  shelf  with  back, 
shelf,  and  one  support.   Proportion  about  as 
follows:   back  square;   shelf  two  to  three  in 
width  to  length  and  placed  one-quarter  dis- 

7  97 


tance  from  top  to  bottom  of  back;   support 
in  harmony.  Use  curves  in  outlines. 

5.  Draw  a  design  which  might  appropri- 
ately be  applied  in  color  to  a  rectangular  box 
cover. 

The  following  special  branches  are  defined  by 
law:  "Music,  drawing,  painting,  penmanship, 
gymnastics,  German,  French,  Spanish,  the 
commercial  and  industrial  branches,  or  any  one 
of  them." 

Applicants  for  high  school  certificates  are  re- 
quired to  take  examinations  in  the  following 
subjects:  algebra,  physics,  physiology  includ- 
ing narcotics,  theory  and  practice  of  teaching, 
literature,  general  history,  and  four  electives  in 
the  following  group:  Latin,  German,  rhetoric, 
civil  government,  geometry,  physical  geography, 
botany,  and  chemistry.  The  application  blank 
is  shown  on  page  99  and  the  form  of  certificate 
on  page  100. 

The  City  Board  of  School  Examiners  has 
nothing  to  do  with  the  selection  of  these  sub- 
jects as  they  are  determined  by  state  law.  How- 
ever, it  may  be  readily  seen  that  in  view  of  the 
high  degree  of  specialization  in  the  large  high 
schools,  examination  in  these  subjects  is  not  a 
sufficient  basis  for  the  selection  of  teachers  of 
special  ability  for  special  subjects.  For  example, 
would  it  not  be  better  to  examine  the  teacher 

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i— i 


H 


of  English  more  rigidly  in  English,  with  less 
attention  to  physics,  alegbra,  and  the  like?  As 
a  matter  of  fact,  since  most  of  the  high  school 
teachers  who  get  into  the  system  are  college 
graduates  and  have  met  the  requirements  as 
far  as  experience  is  concerned,  they  are  permitted 
to  teach  the  ordinary  academic  subjects,  after 
taking  examination  in  theory  and  practice. 
This  examination  is,  as  a  rule,  very  easy.  The 
secretary  reports  that  no  teachers  ever  fail  on 
this  examination.  Teachers  of  special  subjects, 
including  German  and  the  technical  subjects 
listed  above  are  usually  required  to  pass  a 
somewhat  more  rigid  examination. 

On  the  whole  it,  should  be  said;  tjiat  the  sys- 
tem of  certification  'is  ^o'.adtxiinistered  as  to 
serve  as  a  vepyj^kior  barrier  to<eiitr&nce.  into  -the: 
te'a'chin  y-ofe^ion  in  CleVelMd.'  Teachers'  who. 


come  from  the  outsits  -usually:  ^nd'  it  easy  to 
meet  the  requirements  °  fotf  (testification.  The 
Board  of  Examiners  has  followed  a  liberal  policy 
in  regard  to  the  renewal  of  certificates. 

Some  idea  of  the  type  of  questions  which  the 
high  school  teachers  are  required  to  answer  in 
order  to  show  then*  professional  preparation  can 
be  gained  from  the  following  list  of  questions  in 
the  May,  1915,  examination  in  the  theory  and 
practice  of  teaching  : 


101 


1.  From  what  science  does  pedagogy  draw 
its  facts  and  suggestions? 

2.  How  may  self-activity  be  encouraged  in 
the  pupil,  and  how  may  it  be  suppressed? 

3.  Name  any  principles  that  deserve  to  be 
called  "Laws  of  Teaching." 

4.  Besides  the  school,  what  other  influences 
are  helping  to  educate  the  child? 

5.  How  important  is  the  textbook  in  teach- 
ing? 

6.  What  are  the  advantages  of  a  class  mode 
of  instruction  over  an  individual  mode? 

7.  Distinguish  between  exposition,  drill,  and 
examination  in  the  recitation,  and  state  the 
purpose  of  each.   ; 

8.  Name    several: .  distinguished    educators. 
What  .-helpful  bints  have  you  received  from  their 
professional'  books?  . 

As  may  readily 'be  seen,  these  questions  are 
not  so  difficult  as  to-lserve  to  keep  any  college 
graduate  with  a  fair  amount  of  intelligence  out 
of  the  school  system. 

The  policy  of  Cleveland  in  regard  to  the  certi- 
fication of  teachers  is  in  striking  contrast  to  the 
rigid  system  of  civil  service  examination  for 
teachers  which  obtains  in  New  York  City.  In 
view  of  the  fact  that  promotion  is  largely  on  the 
basis  of  length  of  service,  rather  than  on  evi- 
dence of  additional  training,  it  would  seem  wise 
102 


for  the  Cleveland  Board  of  School  Examiners 
to  assume  a  more  rigid  policy  in  connection 
with  the  certification  of  the  teachers  who  begin 
their  services  in  Cleveland. 


TENURE 

Teachers  are  elected  for  one  year  only.  The 
Board  rule  is  as  follows:  "  (E)  No  teacher  in  the 
Department  of  Instruction  for  any  school  year 
shall  be  regarded  as  employed  until  after  ap- 
pointment by  the  superintendent,  approval  by 
the  Board,  notice  of  such  appointment,  and 
assignment  by  the  superintendent  to  a  specific 
position  as  teacher." 

However,  it  should  be  borne  in  mind  that, 
despite  the  fact  that  appointments  are  for  one 
year  only,  relatively  few  teachers  in  Cleveland 
are  dropped.  As  indicated  by  the  table  on  ex- 
perience in  Cleveland,  the  length  of  service  in 
Cleveland  ranges  from  one  to  41  years,  with  a 
median  of  eight  years.  Not  only  is  the  tenure 
long  for  the  teacher  in  the  school  system  but  as 
a  matter  of  fact  she  is  not  shifted  from  position 
to  position  to  any  great  extent.  Most  of  the 
elementary  teachers  have  taught  in  one  or 
two  grades  only  and  in  only  one  or  two  build- 
ings during  the  past  10  years.  Such  shifts  as 
have  been  made  have  for  the  most  part  been 
103 


occasioned  by  the  opening  of  new  buildings. 
It  is  entirely  clear  that  the  force  is  not  a  migra- 
tory one,  either  from  building  to  building,  or 
within  the  same  building. 

In  other  words,  the  Cleveland  elementary 
teacher,  notwithstanding  the  fact  that  she  is 
subject  to  annual  appointment  with  the  possi- 
bility of  a  new  assignment  of  duties,  generally 
finds  a  steady  task  teaching  the  same  grade  in 
the  same  building.  Indeed  there  are  instances 
on  record  of  teachers  being  in  the  same  building 
for  more  than  40  years. 


DISMISSAL  OF  TEACHERS 
In  the  opinion  of  the  Survey  Staff  a  just  and 
wise  method  of  procedure  in  terminating  the 
service  of  teachers  has  been  stated  by  Dr.  E. 
P.  Cubberley  in  his  recent  book  on  "  Public 
School  Administration." 

"The  notice  of  dismissal  should  in  itself  be 
given  under  certain  definite  conditions  which 
are  just  to  both  sides.  In  the  first  place,  no 
teacher  should  be  liable  to  a  termination  of  con- 
tract for  failure  to  render  satisfactory  services 
who  has  not  been  notified  of  the  deficiencies, 
and  given  an  opportunity  and  reasonable  as- 
sistance to  remedy  them.  If  improvement  does 
not  result,  sufficient  to  warrant  the  retention  of 
104 


the  teacher,  the  superintendent  should  then 
recommend  that  written  notice  be  served  on  the 
teacher,  for  specified  reasons,  to  the  effect  that 
the  board  desires  to  terminate  the  contract  with 
the  teacher  to  take  effect  at  the  close  of  the  school 
year.  If  the  board  approves,  the  notice  should 
be  given  to  the  teacher,  and  not  later  than  the 
last  day  the  schools  are  in  session  during  the 
school  year,  and  when  so  served  the  contract 
with  such  teacher  terminates  at  the  end  of  such 
school  year.  For  the  sufficiency  of  the  reasons 
for  terminating  the  contract,  the  superintendent 
and  the  board  should  be  the  sole  judge,  without 
the  meddling  of  lawyers  or  the  interference  of 
the  courts.  Teachers  not  so  notified  continue 
in  service  from  year  to  year.  Teachers  who  do 
not  desire  to  retain  their  positions  should, 
in  turn,  notify  the  superintendent  in  writing 
not  later  than  a  certain  date,  to  be  sure  of  proper 
release. 

This  middle  ground  is  equally  just  to  both 
sides.  The  usual  condition  is  not  just  to  teach- 
ers, who  have  spent  years  in  making  prepara- 
tion for  a  life  work  of  service,  and  the  life- tenure 
plan  is  not  just  to  taxpayers  or  to  the  children 
in  the  schools.  The  latter  certainly  have  rights 
as  well  as  the  teachers.  The  middle  ground 
gives  practically  life  tenure  to  every  worthy 
teacher  and  school  officer,  but  merely  reserves 
to  the  board,  acting  on  the  recommendation  of 
then*  chief  executive  officer,  and  only  after  help- 
ful advice  has  failed  to  bring  the  desired  im- 
provement, the  right  quietly  to  remove  from 
the  schools  those  who  should  not  be  there." 

105 


SUBSTITUTES 

Cleveland  has  an  unusual  number  of  teachers 
who  are  called  substitutes.  There  are  three 
types  of  teachers  in  this  class:  first,  the  begin- 
ners; second,  married  teachers  known  as  "  per- 
manent substitutes ' ' ;  third,  substitutes  who  work 
from  day  to  day  and  shift  from  place  to  place. 

The  first  class  of  substitutes,  if  they  are  from 
outside  the  city,  have  a  half  year  probation. 
If  they  are  Normal  School  graduates  they  have 
one  year  of  probation.  The  permanent  substi- 
tutes including  married  teachers  of  whom  there 
are  "at  least  250,"  are  regularly  appointed. 
Their  salaries  are  slightly  less  than  those  of  the 
regular  teachers  and  they  can  be  dropped  at 
any  time.  The  third  class  of  substitutes  are  of 
the  same  general  class  as  are  known  in  other 
cities. 

On  January  1,  1916,  there  were  967  teachers 
on  the  substitute  list  of  whom  96  were  high 
school  teachers,  774  elementary  teachers,  65 
kindergarten  teachers,  and  32  special  teachers. 
Of  this  total  about  250  were  new  appointments, 
among  whom  were  included  104  graduates  of 
the  Normal  Training  School.  The  number  of 
substitutes  available  for  day  to  day  service  in 
the  elementary  schools  was  not  more  than  100. 
Thus  there  were  more  than  600  substitute 
teachers  who  were  neither  on  the  list  of  new 
106 


appointments  nor  on  the  list  to  be  called  out 
for  ordinary  substitute  service.  This  remarkable 
situation  is  of  concern  to  the  city  chiefly  in 
connection  with  the  question  as  to  whether 
or  not  this  large  proportion  of  substitute  teach- 
ers on  the  list  of  total  appointments  serves  as  a 
help  or  hindrance  toward  building  up  a  pro- 
fessional consciousness  among  the  teachers. 
Cleveland  should  face  this  question  frankly 
with  a  view  of  either  justifying  the  situation  or 
changing  it.  It  should  not  go  on  unchallenged. 


APPOINTMENT  OP  TEACHERS 
The  Board  rule  in  regard  to  filling  vacancies  in 
the  high  school  requires  that  these  places  be 
given  to  teachers  of  recognized  training  and 
demonstrated  ability.  Teachers  of  academic 
subjects  must  be  graduates  of  college.  "In  the 
elementary  schools  it  will  be  the  aim  to  obtain 
the  services  of  some  teachers  of  experience  and 
proved  competency  who  have  been  notably 
successful  in  other  places.  In  choosing  among 
beginners,  preference  will  be  given  to  the 
graduates  of  the  Cleveland  Normal  Training 
School.  .  .  .  No  person  shall  be  appointed 
as  a  teacher  who  has  not  had  successful  experi- 
ence as  a  teacher,  or  who  has  not  completed  an 
academic  course  of  study  equivalent  to  that 
107 


provided  at  the  Cleveland  high  schools,  and  in 
addition  thereto,  a  professional  course  equi- 
valent to  that  of  the  Normal  Training  School 
unless  the  demand  for  the  teachers  exceeds  the 
supply." 

Reference  to  the  tabular  distribution  of 
scholastic  qualifications  reveals  the  fact  that 
many  teachers  fail  to  come  up  to  this  standard. 
The  loop-hole,  "  unless  the  demand  for  the 
teachers  exceeds  the  supply,"  makes  possible 
a  wide  range  of  latitude.  This,  coupled  with 
the  fact  that  the  City  Board  of  School  Exam- 
iners has  assumed  a  liberal  policy,  makes  it 
easily  possible  that  an  incompetent  teacher 
may  be  appointed  to  a  place  on  the  staff. 

The  superintendent  of  schools  is  given  the 
responsibility  for  the  appointment  of  teachers. 
The  Board  rule  is  as  follows:  "The  Superin- 
tendent of  Schools  shall,  at  the  annual  appoint- 
ment of  teachers,  make  separate  lists,  placing 
the  elementary  teachers  and  principals  together 
on  one  list,  the  high  school  teachers  and  prin- 
cipals on  another,  and  the  assistant  superin- 
tendents and  supervisors  on  another.  .  .  . 
With  the  name  of  every  person  who  is  for  the 
first  time  appointed  by  the  Superintendent 
as  teacher  in  the  public  schools  of  this  city,  it 
shall  be  stated  by  the  Superintendent  whether 
such  person  has  a  valid  Cleveland  certificate, 
108 


or  whether  such  appointee  is  a  graduate  of  the 
Normal  School  of  this  city,  or  of  any  other 
normal  training  school,  and  a  graduate  of  any 
college."  The  restrictions  of  the  Board  and  the 
statute  seem  to  be  inadequate  in  the  matter  of 
safeguarding  entrance  to  teaching  positions 
in  Cleveland. 

Notwithstanding  the  responsibility  placed 
upon  the  superintendent  in  regard  to  the  teach- 
ing staff,  it  is  only  within  a  comparatively 
short  time  that  the  superintendent  has  had  funds 
sufficient  to  go  outside  of  Cleveland  on  a  search 
for  teachers.  In  effect  he  has  been  forced  to 
choose  from  the  teachers  who  applied  for  posi- 
tions. In  view  of  the  fact  that  the  salary  sched- 
ule of  Cleveland  has  been  lower  than  that  of 
other  cities  of  the  same  size,  it  may  be  questioned 
as  to  whether  or  not  it  has  been  a  wise  policy 
for  Cleveland  to  rely  upon  these  applicants 
alone.  Cleveland  is  to  be  congratulated  on  the 
fact  that  the  superintendent  now  has  a  fund  to 
be  utilized  in  searching  for  teachers.  It  is  to  be 
hoped  that  the  other  duties  of  the  superin- 
tendent of  schools  will  not  interfere  with  a 
vigorous  campaign  in  this  direction  from  year 
to  year. 

SUMMARY 

1.  There  is  opportunity  for  a  regular  elementary 

teacher,  appointed  to  the  probationary  class,  to 

109 


advance  from  one  salary  class  to  another  dur- 
ing a  minimum  period  of  10  years  to  the  highest 
class  at  a  salary  of  $1,000  per  year.  The  salaries 
paid  to  substitute  teachers  vary  with  conditions 
of  service. 

2.  The  salary  of  the  high  school  teacher  may 
reach  $2,000  after  17  years  of  service. 

3.  The  salary  of  elementary  school  principals 
is  based  on  the  number  of  regular  standard 
classrooms  under  the  direction  of  the  principal. 
The  maximum  salary  is  $2,000. 

4.  Cleveland  pays  a  lower  average  salary  to 
elementary  teachers  than  is  paid  in  San  Fran- 
cisco,   Boston,    Chicago,    St.    Louis,    Newark, 
Cincinnati,  Minneapolis,  Milwaukee,  and  Phila- 
delphia, and  higher  than  in  Washington,  In- 
dianapolis, Baltimore,  and  New  Orleans. 

5.  Cleveland  pays  a  lower  median  salary  to 
her  elementary  school  principals  than  is  paid  in 
Boston,  Chicago,  Newark,  St.  Louis,  Cincin- 
nati,   Baltimore,    Milwaukee,    San    Francisco, 
Minneapolis,  and  Philadelphia,  and  higher  than 
in  Washington,  Indianapolis,  and  New  Orleans. 

6.  The  median  salary  of  high  school  teachers 
in  Cleveland  ranks  seventh  in  the  foregoing  list 
of  14  cities. 

7.  The  purchasing  power  of  a  dollar  in  Cleve- 
land is  estimated  to  be  slightly  less  than  in 
Chicago,  but  the  difference  is  not  enough  to 

110 


justify  a  difference  in  average  salary  of  ele- 
mentary teachers  from  $1,054  in  Chicago  to 
$834  in  Cleveland. 

8.  Cleveland  salaries  for  elementary  teachers 
show  up  to  even  greater  disadvantage  when 
compared    with    salaries    paid    other    skilled 
workers  in  Cleveland. 

9.  In  the  general  competition  for  teachers 
Cleveland  cannot  hope  to  hold  her  own  unless 
adequate  salaries  are  paid. 

10.  The  salary  adjustment  is  a  matter  of 
vital  concern  to  the  Cleveland  public  from  the 
standpoint  of  service. 

11.  A  pension  system  providing  a  maximum 
of  $450  per  year  has  been  in  operation  for  a 
decade.  An  average  of  10  teachers  retire  on  this 
each  year. 

12.  Cleveland  employs  a  much  smaller  pro- 
portion of  male  elementary  principals  than  is 
customary  in  large  cities.    Almost  the  usual 
proportion  of  men  are  employed  in  the  high 
schools. 

13.  Half  of  the  elementary  teachers  have  had 
10  years  or  more  experience.    The  median  ex- 
perience of  the  high  school  teacher  is  11  years. 

14.  Half  of  the  elementary  principals  have 
had  32  years  or  more  experience.  This  leads  to 
the  conclusion  that  the  principalships  go  to  the 
survivors  in  the  system. 

Ill 


15.  The  median   tenure  of  the  elementary 
teachers  is  eight  years;  high  school  teachers  six 
years. 

16.  The  median  age  of  the  elementary  teacher 
is  31  years;  of  the  high  school  teacher  36  years; 
of  the  elementary  principal  52  years. 

17.  More  than  300  elementary  teachers  have 
had  no  normal  school  training;   83  high  school 
teachers  are  not  graduates  of  college;  26  elemen- 
tary principals  have  not  completed  a  normal 
school  course. 

18.  Eighty-three  per  cent  of  the  elementary 
teachers,  35  per  cent  of  the  high  school  teachers, 
and  84  per  cent  of  the  elementary  principals 
have  received  all  of  their  education,   except 
summer  school  training,  in  Cleveland. 

19.  The  per  cent  of  home  trained  elementary 
teachers  and  principals  is  higher  than  is  recom- 
mended elsewhere. 

20.  Marriage  is  equivalent  to  a  resignation, 
but  such  teachers  are  re-employed  as  substitutes. 
There  are  at  least  250  such  substitutes  on  the 
payroll. 

21.  The  present  arrangement  in  regard  to 
married  teachers  is  not,  in  the  opinion  of  the 
writer,   conducive  to  professional  growth.    A 
better  plan  would  be  to  employ  them  outright, 
giving  them  the  same  incentive  to  superior 


112 


service  and  improvement  as  that  given  other 
teachers. 

22.  Although  there  is  a  general  statement  by 
the  Board  encouraging  growth  in  professional 
knowledge,  there  has  been  little  definite  pro- 
vision for  stimulating  teachers  hi  service  to  im- 
prove themselves. 

23.  The  St.  Louis  plan  of  extension  course  is 
commended. 

24.  Summer  school  attendance  might  profit- 
ably be  encouraged  by  the  Board. 

25.  Although  there  is  a  strict  Board  regula- 
tion requiring  attendance  at  teachers'  meetings, 
there  are  comparatively  few  meetings.  Teachers 
seem  to  begrudge  the  time  given  to  them. 

26.  There  is  relatively  little  attention  given 
to  special  professional  training.  The  Indianapolis 
plan  is  commended. 

27.  Promotion  is  based  on  experience  and  the 
recommendation  of  the  superintendent. 

28.  The  evidences  of  professional  growth  as 
filed  in  the  applications  for  promotion  indicate 
a  low  standard. 

29.  The  Normal  Training  School  furnishes 
about  100  teachers  annually. 

30.  The  present  administration  of  the  Normal 
Training  School  is  commended  for  its  attempt 
to  follow  up  the  training  of  the  teachers  in 
service  by  means  of  the  summer  session. 

8  113 


3 1 .  Extension  courses  for  principals  are  recom- 
mended. 

32.  The  Board  allows  10  days'  sick  leave  to 
each  teacher. 

33.  The   City  Board   of  School  Examiners 
may  grant  provisional  certificates  for  one  year 
and  three  years. 

34.  The  system  of  certification  is  so  adminis- 
tered as  to  serve  only  as  a  minor  barrier  to 
entrance  to  the  teaching  profession  of  Cleve- 
land. 

35.  A  more  rigid  system  of  selection  of  teach- 
ers is  recommended. 

36.  Although  tenure  is  legally  for  but  one 
year,  in  practice  tenure  is  for  a  long  time.  The 
employment  of  967  substitute  teachers  is  chal- 
lenged. 

37.  The  Board  rule  for  the  qualifications  of 
teachers  sets  a  high  standard,  but  provides  a 
loop-hole  which  makes  it  possible  for  teachers 
of  widely  varying  qualifications  to  be  appointed. 

38.  The  superintendent  is  given  the  responsi- 
bility for  the  appointment  of  teachers,  but  he 
has  neither  been  adequately  safeguarded  by 
requirements   for   teachers   nor   has   he   until 
recently  been  given  sufficient  means  to  go  out- 
side the  city  to  search  for  the  best  teachers 
available. 


114 


CLEVELAND  EDUCATION  SURVEY  REPORTS 

These  reports  can  be  secured  from  the  Survey  Committee  of 
the  Cleveland  Foundation,  Cleveland,  Ohio.  They  will  be 
sent  postpaid  for  25  cents  per  volume  with  the  exception 
of  "Measuring  the  Work  of  the  Public  Schools"  by  Judd, 
"The  Cleveland  School  Survey"  by  Ayres,  and  "Wage  Earn- 
ing and  Education"  by  Lutz.  These  three  volumes  will  be 
sent  for  50  cents  each.  All  of  these  reports  may  be  secured 
at  the  same  rates  from  the  Division  of  Education  of  the 
Russell  Sage  Foundation,  New  York  City. 

Child  Accounting  in  the  Public  Schools. — Ayres. 

Educational  Extension — Perry. 

Education  through  Recreation — Johnson. 

Financing  the  Public  Schools — Clark. 

Health  Work  in  the  Public  Schools — Ayres. 

Household  Arts  and  School  Lunches — Boughton. 

Measuring  the  Work  of  the  Public  Schools — Judd. 

Overcrowded  Schools  and  the  Platoon  Plan — Hart- 
well. 

School  Buildings  and  Equipment — Ayres. 

Schools  and  Classes  for  Exceptional  Children — Mit- 
chell. 

School  Organization  and  Administration — Ayres. 

The  Public  Library  and  the  Public  Schools — Ayres 
and  McKinnie. 

The  School  and  the  Immigrant. 

The  Teaching  Staff — Jessup. 

What  the  Schools  Teach  and  Might  Teach — Bobbitt. 

The  Cleveland  School  Survey  (Summary) — Ayres. 


Boys  and  Girls  in  Commercial  Work — Stevens. 

Department  Store  Occupations — O'Leary. 

Dressmaking  and  Millinery — Bryner. 

Railroad  and  Street  Transportation — Fleming. 

The  Building  Trades— Shaw. 

The  Garment  Trades — Bryner. 

The  Metal  Trades — Lutz. 

The  Printing  Trades — Shaw. 

Wage  Earning  and  Education  (Summary) — Lutz. 


JAN  2  3  1978 


DATE  DUE 


PRINTED  INU.S   A 


